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Book "^ 7 




HENRY L. BOLTWOOD. 



The first township high school principal in Illinois, who organized 
the Princeton Township High School in September, 1867. 



ILLINOIS HIGH SCHOOLS 



Their Organization, Maintenance, Administration and Instruction 
with Particular Reference to the Township High School 



^/ if - f6-3' 



BY 



LEWIS WILBUR SMITH, A. M., 

Principal of Thornton Township High School 

Harvey, 111. 



Issued by 

FRANCIS G. BLAIR, 

Superintendent of Public Instruction 



[Printed by autliority of the State of Illinois.] 






Springfield, III. 

Illinois State Journal Co., State Printers. 

1917 

P4926— 2500 



D. Of B. 
JUL 9 1918 



ACKNOWLEDGEMENTS. 



The body of the Avork in the following study is based primarily on 
original records in the office of the Department of Public Instruction of 
the State of Illinois. These records were made available to me for the 
purposes of this study by the cordial cooperation of that office. For this 
cooperation and assistance I am thoroughly grateful. 

Liberty to pursue this study effectively was made possible by the 
unusual action of the members of the board of education of Thornton 
Township High School, who in order to promote this investigation gave 
me permission to devote to it whatever time might be necessary, con- 
sistent with the adequate discharge of my regular duties. I am under 
great obligation to them for the opportunity which this permission 
afforded. 

L. W. S. 



TABLE OF CONTENTS. 



Frontispiece. page. 

Introduction — Hon. P. G. Blair 9 

Chapter I — Sources and Method of the Investigation 11 

Chapter II — The Constitution of the Township High School 24 

Chapter III— The Plant 31 

Chapter IV — Finance 71 

Chapter V — The Course of Study 88 

Chapter VI— The Principal 116 

Chapter VII — The Teachers 150 

Chapter VIII— The Student Body 175 

Chapter IX — Efficiency of High School Graduates in the University 198 

Chapter X — The Territorial Unit Underlying the Township High School. 222 

Chapter XI — Launching the Township High School 242 

Chapter XII — Conclusion 250 

Appendices 26.3 



INTRODUCTION. 



ISTo other part of the common school system is in such a state of 
fiiix and flow as that part called the high school. Even the number of 
years of work to be assembled under this term is a matter of discussion. 
The unusual growth in attendance in these upper grades of the common 
school has forced us into a thoroughgoing investigation of all the 
elements and forces involved in the high school situation. 

In 1906 there were 52,394 pupils enrolled in the high schools of 
Illinois. In the year 1916 there were 102,870 enrolled, an increase of 96 
per cent in ten years, while during the same period the increase in the 
enrollment in the elementary grades was only 4.8 per cent. During the 
year ending June 30, 1916, the enrollment in the high schools had 
increased 10.5 per cent over the previous year, while the enrollment in 
the elementary schools had increased only 1 per cent. 

In 1906 there were 438 high schools reported to this office. In 1916 
there were 827 high schools. During this decade the number of teachers 
employed in the high schools increased from 2,057 to 4,691. The 
operating cost had grown from $2,119,814 to $6,788,542. The value of 
the equipment had increased from $7,982,988 to $26,233,583. 

These data indicate clearly the need of a thoroughgoing study of 
the laws, plans and methods for organizing, maintaining, administering 
and instructing these high schools. In Illinois there are at least three 
distinct plans and methods warranted by law and by custom for organ- 
izing and maintaining high schools. 

The oldest of these was the establishment of a high school as a mere 
extension of the elementary school under the control and management 
of the same board of education. With the widespread demand for the 
establishment of high school privileges, it was found that many districts 
were unable to maintain a good elementary school and a good high 
school out of the proceeds of the one tax allowed by law. It was also 
discovered that where the high school and the elementary schools were 
placed in competition for their share of the local school funds the high 
school v/as sure to procure a relatively larger portion of the fund than 
the elementary schools, the pupils of these lower grades losing something 
in the length of term and equipment, in the variety of courses of its 
instruction and in the quality of the teaching. Mainly to overcome these 
difficulties, the Township High School Law was enacted. It provided a 
plan and a method for organizing larger districts, including the under- 
lying elementary districts. The township high school district thus 
formed with its regularly constituted board of education was given the 
power to levy a tax to operate a high school independent of the tax laid 
by the boards in the underlying districts for maintaining the elementary 
schools. 



10 

The first law of this kind was in tlie nature of a special charter, 
under which was established the Princeton Township High School. In 
1872 the provisions of this law were made general. At almost every 
subsequent session of the General Assembly the law has been modified. 
Substantially 100 high schools have been established and are in operation 
under tliis old Township High School Law. In 1911 a new form of the 
Township High School Law was enacted. The plan and method for 
organizing the district were made easier. Under this law within the 
brief period of five years 193 districts were established. 

Another method which has not been very generally used is a mod- 
ification of the first plan. It provided for the consolidation of elementary 
school districts into one central school under a board which may provide 
high school privileges, as well as elementary school privileges to the 
pupils enrolled. 

It is not strange that in such a period of great development in high 
school organization, with such variety in plan and method for efl:ecting 
these organizations, with such widely variant ideas as to what should 
be the program of studies and the method of instruction, confusion and 
sometimes conflict has arisen. Boards of education and supervising 
officers are seeking earnestly to discover the basis of observed fact on 
which to project their plan of organization and administration. Many 
surveys and investigations have been made along this line. So far as 
my information goes, no investigation of such a thoroughgoing and 
worth while character into the fundamental elements and factors of the 
question has ever been made as the one, the results and conclusions of 
which are presented in this volume. 

The office of Public Instruction and all school officers related to 
the high schools of Illinois are under obligations to him who has, with 
painstaking care and thoroughness, studied the situation, compiled the 
facts and drawn the conclusions. 

Superintendent. 




11 



CHAPTER I. 

SOURCES AND METHOD OP THE INVESTIGATION. 

It is the purpose of this paper to describe as thoroughly as possible 
the charcteristics of the high schools of Illinois with particular refer- 
ence to the township high school. In studjdng the township high schools 
the comparative method has been followed and consequently the infor- 
mation concerning the city high schools is almost as complete as that for 
the township high schools. This report is primarily concerned with 
their actual status and operation as educational institutions. In studying 
the characteristics of this group of schools it is our aim not only to 
describe what is found but also to set up certain standards of efficiency. 
For example, the excellence of the plant and the completeness of the 
equipment contribute to the efficiency of a school. However, we might 
find excellence of equipment in certain features and deficiencies in other 
features. We can estimate the completeness of a school or a system of 
schools only by examining all or nearly all its factors. No measure of 
efficiency, however, is complete which does not give an account of the 
efficiency of students after they have left the school. At the present 
time there are no adequate standards by which to measure the efficiency 
of high school students, though such standards are now in process of 
development. In this study we have not been able to find any material 
which bears directly upon the efficiency of students except the careers 
of the graduates from the various high schools in the university. This is 
a just though not a complete measure of efficiency, and will be dis- 
cussed in detail in a later chapter. 

The largest part of the material for this report was derived from 
records entered upon a blank in the State Superintendent's office, known 
as Director's Annual Report (Form No. 2). A copy of this blank is 
as follows : 



12 



TO BE FILLED OUT BY THE SUPEEINTENDENT OF SCHOOLS, AIDED BY THE CLEEK OF THE BOAED. 

ANNUAL REPORT (FORM 2). 

This form to be used in reporting to tlie townsliip treasurer and county superintendent the following 

schools: 1st — All districts with cities and villages having a population of 1,T)00 or more. 2d — All 

districts maintaining three or more years of high school. 3d^-All districts maintaining 

a two year high school which holds a certificate of recognition by the department 

of public instruction. 



For the year ending Juno 30, 1915. 



A prompt and careful report of all required statistics is one of the conditions of recognition of any high 
school by the department of public instruction. 



Name of District No. 



-County, Illinois. 



1. School census: 



All under 21 years of age. 




All between 6 and 21 
years of age. 


Boys. 


Girls. 


Total. 


Boys. 


Girls. 


Total. 



Date of census: 



Elementary. 



a 

2.^ 



Kinder- 
garten. 


1st yr. 


2dyr. 


Sdyr. 


4th yr. 


5th yr. 


6th yr. 


7th yr. 


8th yr. 


Total. 




S 


o 


3 


o .a 


o 

m 


3 


o 

pq 


3 


o 
W 


3 


>> 
o 

W 


3 


1 


3 




o 

W 


3 
o 








1 1 





























Secondary (High). 



9th yr. 


lOth yr. 


nth yr. 


12th yr. 


Total. 


Grand total 


o 


3 


o 
PQ 


3. 


1 


42 

3 


o 
pq 


3 


1 

pq 


3 


o 
PQ 


3 




1 












1 1 1 



3. Length of school year in months Actual number of days 

in session 

4. Whole number of different 

persons employed as teach- 
ers during the year: (In- 
clude all who taught part 
of the year) Men Women Total 

5. Number of eighth grade pro- 

motions Boys Girls Total 

6. Number of elementary tui- 

tion pupils Boys Girls Total 

7. Number of high school grad- 

uates Boys Girls Total 

8. Number of high school tui- 

tion pupils Boys Girls Total 



High school courses offered: 
Indicate by X and give length. 



— 


Academic (classical, 
scientific, etc.) 


Yrs. 


Commercial 


Yrs. 


— 


Technical (M. T.) 


Yrs. 


Agricultural 


Yrs. 


Domestic Economy 


Yrs. 









13 



9. Administrative officers: 

(a) Superintendents wiio do no teacliing 

(b) Principals and supervisors vs^ho teach less than half 

time 

10. Teachers and principals who teach half time or more. (If 
more than one person has taught in a room, coimt the 
one teaching the longer part of the term) 



11. Whole number of teaching positions (sum of 9a, 9b and 
10 ^ 



12. Number of teachers, graduates of: 

(a) College and State Normal School . 



(b) College, only 

(c) State Normal School, only. 



(d) Foiu'-year High School, only. 
Attended, but not a graduate of: 

(e) College 



(f) State Normal School. 



(g) High school 

(Give only highest graduation or attendance.) 

13. Amount of annual salary earned by teachers. (If a posi- | 
tion has been held by more than "one person, give as an- J 
nual salary the sum earned by all for the one who held ] 
the position longest) | 



14. Total days' attendance of all pupils enrolled . 
16. Number of school houses: 

(a) PubUc property 



(b) Rented.., 
Total. 



17. Number of seats or sittings for study (capacity) (double 

seats to be counted as two sittings) 

18. Value of school property: 

(a) Sites and buildings 

(b) Equipment (furniture, Ubrary, apparatus, etc.) 

Total 



Total for elementary 
and secondary 
(high) schools. 



Men 

Women 



Total. 



Men. 
W omen 



Total . 



Account 
of secondary 
schools only. 



XX 



XX 



19. Give length of service in tliis district of teachers holding positions at close of school: 

1 yr 2 yrs 3 yrs 4 yrs 5 yrs 6 yrs 7 yrs 

8yrs 9yrs 10 yrs 11 yrs 12 yrs 13 yrs 14 yrs 

15 yrs 16 yrs 17 yrs 18 yrs 19 yrs 20 yrs. or more 

(Count part of a year as a year.) 

20. Promotion of health and attendance: 

(a) Number of inspectors employed Nurses Physicians Total. 

(b) Number of truant officers employed Men Women Total. 

21. Amount of taxes for all school purposes levied August, 1914 $ 

22. Amount of bonded indebtedness, July 1, 1915 $ 

23. Number of volumes in school library exclusive of supplementary reading books for class use — 

24. Number of private schools in the district 

(a) Number of teachers employed Men Women Total. 

(b) Number of pupils enrolled Boys Girls Total. 

25. Number of persons between the ages of 12 and 21 unable 

to read and write Bovs Girls Total. 

26. Have you any departmental teachmg below the high school? If so, which years? 

27. Amount of endowment on permanent fund belonging to this distriU S 



14 



29. SALARIES OF TEACHERS. 
Enter in the following table the number of teachers in day schools paid the diflorent annual salaries. 



Salaries. 


Elementary. 


Secondary. 


Salaries. 


Elementary. 


Secondary. 


Men. 


Women. 


Men. 


Women. 


Men. Women. 


Men. 


Women. 


Less than $ 200. 










$1 200 to $1,299 










$ 200 to 299. 










1,300 to 1,399.. 










300 to 399. 










1 100 to 1,499 










400 to 499. 










1,500 to 1,599 . 










500 to 599. 










1,600 to 1,699.. 










600 to 699. 










1,700 to 1,799.. 










700 to 799. 










1,800 to 1,899.. 










890 to 899. 










1,900 to 1,999.. 










900 to 999. 










2 000 to 2,499 










1,000 to 1,099. 










2,500 to 2,999.. 










1,100 to 1,199. 










3,000 and over.. 































DISTRICT EXPENDITURES. 

Township treasarers are not to copy these items. 

The siiperinteudoiits of districts maintaining a school system that includes a high school of three 
years or more, and of only two years if recognized by the Department of Public Instruction, are required 
to fill out bolli columns on puges 1 and 3 in connection with the rest of this report. The first column 
refers to the whole system, incUiding the high school. 

No item under g(MU'ral coiUrol is to be given in the high school column, and Items ISa and 48 arc to 
be blank unless I lie bmldiug is used cxclusivelv for high school purposes. In case an item under current 
expense is used for both eleiiieutary and seroiidary schools, the amount expended should bo apportioned 
between the two classes of schools,' except items under general control as mentioned above. 

Township high scliools may be reported in total coluinn. 

A prompt and careful report of all required statistics is one of the conditions upon which the annual 
registration of certificates or their renewal may be secured. 



Current expenses. 



Total for elementary and 
secondary (high) schools. 



Expended for secondary 
(high) schools only. 



42. General control: 

(a) School boards and business 
othces 


% 














X 
X 

X 


X 
X 

X 


X 
X 

X 


X 
X 

X 


X 
X 

X 


X 
X 

X 


X 


(b) Compulsory attendance... 
















y 


(c) Superintendents who do no 
teaching 
















V 


43. Instruction: 

(a) Supervisors and principals 
who teach less than half 


















(b) Teachers and principals 
who toach half time or 






























(c) Textbooks, stationery, 
supplies, etc 


























































(e^ Tuition of transferred pu- 
pils (paid by this district) 
44. Operating school: 


























































(b) Fuel, water, light, power, 

janitors' supplies, etc . 

45. Maintenance of plant (repairs, 

replacement of equip- 
ment, insurance, etc.).. 

46. Auxiliary agencies: 

(a) Libraries 

<h) Promot on of health 

(c) Transportation of pupils . 

(d) Rent 






































































































































































































(t) 

■* (Itemize all amounts over $10.00) 


























































C.VPITAL OUTI..\Y. 

48. New grounds and buildings, 

alterations of old build- 
ings (not repairs) 

49. New equipment (not rcplace- 


























































50. Total capital outlay 



























































15 



SUMMARY FOR HIGH SCHOOL ONLY. 

Enrollment 

Average daily attendance 

CURRENT EXPENSES. 

General control 

Instruction 

Operating school plant 

Maintenance of plant 

Auxiliary agencies 

Total current expenses 

Cost per enrollment 

CAPITAL OUTLAY. 

New grounds and buildings 

New equipment 

Total capital outlay - 

Total expenditures 

: : ; : : : '-2 : 2 2 2.2 g it; o i^:^ 

«• . .0 . '.ii : ; ;3 o— ""a^^-M 5 2: — 

! I '.^ '. '. ~ '■ '. '■ cs o-'S-C3-=-d'. a>5.o 

_.o . . . .3 . . .p-'^o^'^^.s-yiu ^s: 

:^ 2 • : :^ :i^ : : : • 2 ^ ^^ >.sr-::- 2 SasTS 

« o- : a : :^ :a. : : ig- | >;:=-s^.a >>-3 ©wc 

^ i \ : I -I ■ ■ I ■ Pllisy sgll 

«!=::: :g : : ; : m>°2i^2s<S ^§as 

ji'll !o<; ;.; a m-d t, r-. " « a. "^ "^ Pi 

S'*' • ■ • '£ ■ ■ : ' a<i>5l£'3-^'^3t;K#_, 

r S -c : : ..a . . ; . §«> 5^-";jr;^'«>^Hrs 
< ^ -^ a : : ; : : : ^5 -3^^ § I g g gS p'g 

« o • T! • T3 rs • — ^ o Si rt'? o =3^ o 2 3 

15 H : ''I : <; fL, : e -oSo.S-SS-! S.:s3 

OFFICE OF SUPERINTENDENT OF PUBLIC IN.STRUCTION. 



INSTRUCTIONS. 

Item 1. Report to the treasurer of each township in which your district lies the correct number of 
persons under 21 years of age and the number between 6 and 21 years of age, living in that part of your 
district in his township. 

If your district lies in two or more counties, you must show in your report the number of minors and 
the nu'mhor of school age living in each county. This is to give your district its share of the distributive 
fund of Mi.'il, county. 

Have the census taken in June, and accurately. This is made the basis for the apportionment of 
the State School Fund by the County Superintendent. 

Items 2 to 29. Make a full report of these items to the treasurer of the township in which your .school 
hou.se is located. Should you have two school houses located in different townships, report in full, only, 
to the treasurer having charge of the district funds. 

High schools. The superintendents or principals of districts maintaining a high school of three 
years or more and of only two years if recognized by the Department of Public Instruction, both district 
and township, are to fill out this blank in duplicate, one copy to be left with the clerk of the board and 
filed by him with the township treasurer and one copy to be forwarded to the county superintendent 
who sliall (ilc the same with the Superintendent of Public Instruction. 

City schools. A complete report of all city schools in cities and villages having a population of 1,000 
or more, although they may not maintain a high school, should be made by the supcriiid'iicloiit with the 
assistance of the clerk, on this form, in duplicate. One copy should be left with the clerk and filed by 
him with the township treasurer and one copy forwarded to the County Superintendent of Schools, who 
shall file the same with the Superintendent of Public Instruction. 

In case the superintendent does not oversee tlie taking of the census as given in Item 1, the clerli of 
the board should see that it is given before sending the report to the town.ship treasurer. 

Fill out all items accurate and complete, and file with the treasurer near July 1st. It must be filed 
by July 7th. All schedules and statements must be filed at the same time. 

F. G. Blair, Superintendent. 

It will be noted that this information before it reaches the State 
Superintendent's offices passes through the hands of several responsible 
officers. In the first place it is filled out by the superintendent of schools 
with the assistance of the clerk of the board. It is then sent to the 



16 

township treasurer, and is by him transmitted to the county superui- 
tendent. The county superintendent, after receiving these various 
blanks, forwards them to the State Superintendent. It is tiie duty of 
these various officers to check over these blanks as they come in and see 
that they are accurate. When a certain body of statistics does not check, 
the officer who checked it returns it to the one who had the blank preced- 
ing him and has it corrected. By this means the blank is checked and 
corrected by several officers before it becomes a part of the official record 
of the State Superintendent's office. It thus furnishes a reliable body 
of material for the basis of statistical calculation. Furthermore, it is 
an official blank, and the people Mdio fill it out have a definite respon- 
sibility for its accuracy. 

School officials are required to fill out this blank. On this account 
the schools make more complete returns than is common in answer to 
questionnaires. The ordinary questionnaire calls out from 40 to 60 per 
cent of the possible answers. 

The total number of high schools reporting on the blank is 459. 
To be sure many of them are not accredited by the North Central 
Association or the State University or any other standardizing agency. 
Many of them have a very meager teaching force and a small student 
body, but it was thought best to make a study of practically all of the 
four-year high schools in the State. In that M'ay we do not have ;i 
specialized group. 

A second body of records in the State Superintendent's office on 
which this investigation was based is the approval blank of the Depart- 
ment of Public Instruction, and is in the following form: 



STATE OF ILLINOIS DEPARTMENT OF PUBLIC INSTRUCTION. 

APPROVAL BLANK. 

Application for State Approval of High School from the High School at 

(To the Principal: Fill out and mail this application blank to the Superintendent of Public Instruction, 

Springfield, Illinois.) 

REPORT FOR SCHOOL YEAR 191.. -191.. 

A. General Information. 

1. How is your school governed? (Indicate by underlming): (a) Township board of five members; 
_(b) township board of seven members; (c) board of education; (d) board of directors, (e) If the latter, is 
it a "consolidated district?" — 2. When was the school established? ^3. Name of city super- 
intendent — 4. Name of principal — 5. Name of secretary of the board — 6. Is the school 

accredited by any higher institutions? If so, name them — 7. If not a four-year high school, 

are your graduates, upon entrance at any four-year high school, given full credit for work done in your 

school? — 8. If so, name that school — 9. Number of pupils, if any, admitted to the ninth grade 

at the middle of this school year: Boys ; girls — 10. Number of pupils, if any, who were grad- 
uated at the middle of this school year: Boys ; girls — 11. Total enrollment for the year — 

high school work only: 



9th year. 


10th year. 


11th year. 


12th year. 


Postgraduates. 


Grand total. 


Boys. 


Girls. 


Boys. 


Girls. 


Boys. 


Girls. 


Boys. 


Girls. 


Boys. 


Girls. 


Boys. Girls. 
















1 







B. Material equipment. 

12. Is there a building or buildings used exclusively by the high school? — 13. If so, give its 

estimated value (site and buildings) — 14. Value of equipment, including furniture, library, and 

apparatus — 15. If not a separate building used only for high school, how many rooms are used 

exclusively for liigh school? State facts clearly — 16. Do you consider the rooms well adapted 

to their uses as to size, lighting, convenience, etc.? — 17. Are your rooms provided with means for 

artificial lighting? If so, what light? If any exceptions, specify — 18. How is the build- 
ing heated: Stove, hot air furnace, steam (direct or indirect), hot water? — 19. How is it ventilated? 

— 20. Describe and locate water closets —21. Describe facilities for drinking water — 22. 

Describe facilities for towels, etc —23. If you have a general assembly room, how many will it 



17 

seat? — 24. Have you a stage and provisions for public exhibitions or dramatic performances? 

Give particulars —25. Is the room equipped also for evening meetings, as to lighting, etc.? 

—26. Is the room used as a study hall? — 27. Have you a high school library? Number of 

volumes Is it used for reference only or also for supplementary work in literature, science, and 

history? Indicate by underlining. Enlarge upon use of library —28. How many laboratories 

have you and for what science courses are they equipped? — 29. Are they equipped for demonstra- 
tion by the teachers only, or for experiment by pupils also? (Indicate by underlining.)— 30. How many 

pupils" can work in any laboratory at one time? —31. Have you special rooms and equipment for 

manual training? If so, give brief description —32. Have you special rooms and equipment 

for domestic science? If so, give brief description —33. What other special equipment has the 

school, such as stereoptieon, gruphophones, stereoscopes, relief maps, collection of pictures? — 34. 

Have you a gymnasium? If so, give dimensions and tell something of its equipment — 35. 

Have you an athletic field? If so, give size and items of interest —36. Give information as to 

control, direction, or supervision of gymnasium or of athletic field 

C. Organization. 

37. Upon what conditions are pupils admitted to the 9th year? —38. Number of years in your 

course? — 39. Number of weeks in each school year? — 40. How many units (one school year's 

daily work in one study or equivalent) is a pupil expected to complete in one year? —41. Are all 

classes conducted with "daily recitations? Give particulars - 42. How many teachers are em- 
ployed in the grade schools from which your pupils are regularly promoted to the high school? (N. B. 
High schools in city systems or receiving promotions from school systems with more than four grade 
teachers need not answer this question.) — 43. Teachers employed during the school year: 





What 
kind of 

certifi- 
cate does 
teacher 

hold? 


Annual 
salary. 


High 
school 

classes 
taught 
daily. 


Subjects 
taught. 


Education- 
Name institutions 

and number of 
years, give degrees 
(if any), describe 
special prepara- 
tion for special 
work. 


Years of teaching 

experience including 

present year. 


Name. 


Total 
years. 


Total 

school 
exper- 
ience. 


Total 
in this 

high 
school. 


Superintendent 


















Principal 
























































N. B.— If needed, use supplementary sheet, similarly ruled. 

44. How much time of the principal is now given to supervision? What do you consider the 

most helpful form of supervision? — 45. Does daily program provide for doing laboratory work in 

two consecutive periods? — 46. Have you any parents' organizations? How constituted? 

What relation to the school authorities? What is their chief value? 

D. Curriculum. 

47. How many units (see question 40) are required for graduation? — 48. How many of these 

are prescribed? — 49. How many elective? — 50. Name the prescribed units? —51. What 

half units, if any, are oflered? —52. What is the length of recitation periods? —53. Laboratory 

periods? — 54. Do you have separate "courses," as academic, classical, literary, scientific, com- 
mercial, technical, teachers' course, etc.? Name all you have: —55. If you do not use the "course" 

system, describe the plan you have — 56. Give a complete statement of your curriculum, indicating 

what studies are offered (i. e., may be taken) in each year, and what studies are prescribed (i. e., must be 
taken) in each year, and showing what choices are allowed. If you have a short "vocational" or other 
course, or any "course within a course," give information clearly about that. 

If the "course" plan is followed, use the space so as to show the studies for each course separately . 



First year. 



Second year. 



Third year. 



Fourth year. 



N. B. — Write the prescribed studies at the top of each column before writing the elective studies, and 
mark them P (prescribed). 

Indicate when special instruction or practice is given as in chorus music, public speaking, gymnasium 
practice, and the like. 
E. Miscellaneous. 

57. When was your school last visited by a representative of the State Department of Public Instruc- 
tion? —58. By a representative from any State institution of higher education? Name it 

—59. Has your school accrediting relations with any other colleges or universities? If so, name 

them —60. How many in all have graduated from your school in the last three years? —61. 

How many of these are attending or have attended any advanced institution of learning — college, univer- 
sity, normal school? — 62. Have you any systematic method or practice of "following up" graduates 

to determine their record in after life? —63. Give information as to what institutions your graduates 

usually go ; make your answers as nearly accurate as you can conveniently — 64. Give any items 

of special interest or importance, that may help in forming a fair judgment of your school— in regard to 
athletics, musical, literary, oratorical or debating programs, periodicals published, contests engaged in, 
public exhibitions of any kind, honors or prizes or recognition of any kind won by the school or any of 

its pupils or graduates —65. Has your school membership in any interscholastic league or body 

— 2 I H S 



18 



for promoting any of these or other activities? If so, name them —66. What is your practice 

in the matter of admitting to your school, for advanced standing, those who come from other high schools? 

^7. Do you accept for admission with full credit the graduates of the tenth year from any other 

schools? If so, name them —68 Have you any special problems or difficulties in the solution 

of which you would like to have the assistance of the State Supervisor of High Schools? 



Date when this blank was filled in. 



By whom filled. 









trl 




1° 


o 






C 


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This blank is in the form of an application of a high school for 
approval by the Department of Public Instruction. On the basis of 
the report made out by a high school on this blank the school is accorded 
or lefused recognition by the Department of Public Instruction. Here 
again we have an official blank filled out by a responsible person and 
sent to a standardizing agency which has authority affecting the standing 
of the school in question. In this case there is no provision for checking 
b}' various officials as in the first blank. There is a temptation not 
present in the first blank for the institution to magnify its merits. This 
exaggeration, however, ean not be very great because the official filling 
out the blank knows that the opportunity for checking is always present 
in the State S.uperintendent's office. This blank, like the other, has the 
merit of covering a large number of schools — 444 schools made reports; 
94 of these were township high schools; the remainder were city high 
schools. 

At this point it should be noted tliat all of the high schools organ- 
ized under township control are referred to as ''Township High Schools,'"' 
although many of them are in fact metropolitan high schools located in 
relatively large cities. The remainder of the high schools of the State 
are referred to as "City High Schools," although many of them are 
country or village schools perhaps having only two or three teachers and 
a score or more of students. 

Inform. ition which can be used for comparative purposes was 
collecto^. by the North Central Association of Colleges and Secondary 
Schools upon blanks filled out early in the school year of 1913-14. This 
body of material, covering all of the schools of the North Central Asso- 
ciation, was tabulated and interpreted by Mr. George S. Counts, and his 
results together with the blank were published by the United States 
Bureau of Education in Bulletin No. 6, Series 1915, under the title, 



19 

*'A Study of Colleges and Secondary Schools in the N'orth Central 
Association." For the purposes of this study the original material was 
made available. It has been worked over in a number of cases into a 
form which is appropriate for this report but which was not necessary in 
Mr. Counts' first report. Thirty-nine township high schools in the State 
of Illinois were included in the material collected by the North Central 
Association. There are some tables in the present investigation which 
compare this group of township high schools with the other high schools 
in the State of Illinois which are members of the North Central Asso- 
ciation, and also with all the high schools in the North Central Asso- 
ciation territory. The value of this is apparent, as it shows the standing 
of the township high schools as compared with two well-standardized 
groups. 

There were certain items of information about township higK 
schools which could not be secured from any of the sources enumerated, 
therefore, a questionnaire was sent out to secure this information. The 
questionnaire is as follows : 

To Principals of Township High Schools: 

History of the establishment of township high school by 

principal. 

Note. — If possible, fill in the answer to every question but do not hesitate 

to return the blank if it is possible to answer only a portion of the questions. 

i. How long did the agitation last between the first proposition of the 

township high school and its final establishment? 

Date of establishment 

What would you say of the opposition to the establishment of the high 
school? 

2. Is there any opposition to it as an institution at present? 

Would people be likely to vote it down now? 

3. How many times was the proposition of its establishment defeated, if 

at all? 

4. What was the size of the first bond issue? $ Was more than one 

attempt made before the bond issue was allowed? Date 

Give dates and amounts of succeeding bond issues 

5. What was the rate of taxation for educational purposes the first year of 

the school's history? For building purposes The 

assessed valuation 

6. How many pupils the first year? Teachers 

7. How many pupils the fifth year? Teachers 

8. What high school facilities existed in the township before the organiza- 

tion of the township high school? 

9. How many pupils at presenf Teachers 

10. If possible, send any printed historical sketch of your school which may 

be available. If no sketch is in existence, any historical material per- 
taining to your school will be greatly appreciated. 
Of the pupils coming to your high school what number come from 
elementary schools of the varying sizes indicated: 

Number of teachers. Number of pupils. 

Single-teacher schools 

Schools of 2 to 5 teachers 

Schools of 6 to 10 teachers 

Schools of over 10 teachers 

Schools not identified 

Total high school enrollment 

Note.— The item "Schools Not Identified" is put in to include those 
pupils (many moving from a distance) the size of whose schools can not be 
learned. 



20 

EXPLANATION. 

In filling out the table shown above, it is desired that all the pupils' 
coming from single-teacher schools be listed together, e. g., there may be 
two students coming from one, three from another, four from another. The 
total would be nine. Similarly fill out the other blank spaces. Now there 
may be two schools having from 2 to 5 teachers and two schools having 
from 6 to 10 teachers, all graduating 8th grade pupils. List together all the 
pupils coming from all the schools having from 2 to 5 teachers, no matter 
where the schools are located, whether in the same district or in several 
districts. 

Return to 

Principal L. W. Smith, 
Thornton Township High School^. Harvey, III. 

In the questionnaire shown above it will be noted that most of the 
information called for relates to establishment of township high schools. 
Other supplementary information is sought as to the growth of these 
schools and the size of the elementary schools from which the pupils are 
recruited. 

In addition to these documents various incidental types of 
information were found on file in the State Superintendent's office, and 
through the helpful cooperation of that office some special information 
was secured for the purposes of this study. This is particularly true of 
some of the materials employed in making up the financial tables. 

Through the courtesy of Prof. H. A. Hollister of the University of 
Illinois the Freshman records of over 2,300 students were sent to me. 
These records I have compiled and discussed in Chapter X of the present 
study. 

So far as possible a uniform method of tabulation has been followed 
throughout all the chapters. The purpose of this uniformity is to 
facilitate comparison. 

As noted above, the high schools are classed into two general 
divisions — city high schools and township high schools. These are again 
classified as to size : 

Class A, high schools having 1 to 100 pupils. 

Class B, high schools having 101 to 200 pupils. 

Class C, high schools having 201 to 300 pupils. 

Class D, high schools having 301 to 500 pupils. 

Class E, high schools having 501 and over. 

In one or two instances a special Class F appears. In such cases 
Class E must be redefined as referring to schools of 501 to 1,000, and 
Class F then includes schools of 1,001 and over. 

The plan on which nearly all the tables are arranged will be under- 
stood through an examination of Table I, which gives the enrollments of 
the schools included in this report. The table is shown at this point as 
a forecast of the method of tabulation throughout the study. 

The grouping of the schools according to the classes based upon 
their enrollment is shown at the top of the table as "A," "B,'' "C^ For 
example. Class A includes those schools having an enrollment of 1-100 
pupils; Class B, an enrollment of 101-200, etc. Each class has two 
vertical columns under it, one for city high schools and the other for 
township high schools. The information which it is sought to display is 



31 



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22 

shown at the left of the table. In this case it is the enrollment which is 
shown in Groups 1-100, 101-200, etc. 

In some of the tables in the study the grouping of the schools is 
shown at the left, and the information which it is sought to display is 
indicated at the top. These two ways of setting up the tables are made 
necessary by considerations of space and ease of reading. Otherwise the 
tables might be made uniform in style throughout. They are uniform 
in method. 

Beginning the column of figures under the caption "Number of 
Schools," there are 252 city high schools having an enrollment of 1 to 
100, there are 46 township high schools having an enrollment of 1 to 100, 
there are 68 city high schools having an enrollment of 101 to 200, 
22 township high schools having an enrollment of 101 to 200, and 
so forth. Under the proper heading the total enrollment of all of the 
high schools of the various classes is shown. For example, among schools 
having an enrollment of 1 to 100 there are 12,908 pupils in the city high 
schools, there are 2,538 in the township high schools, and going down 
the column, there are 3,997 students in the city high schools having an 
enrollment of 301 to 500, there are 4,836 pupils in the township high 
schools having an enrollment of 301 to 500. The median number of 
pupils enrolled in each class is shown. In this table also are shown the 
1st quartile and the 3d quartile in each ol the sub-classes, and the 
quartile deviation. It will be noted, however, that the median in the 
township high schools is higher than in the city high schools in every 
case except in the case of Class C. This is an important fact which 
should be remembered in connection with many other tables in the study. 
This fact is shown specifically in the column marked "Median Excess." 
For example, the median of the township high schools in Class A is in 
excess of the median of the city high schools by an amount of 13.7 per 
cent. Now, this is a very important item in certain tables. For 
example, if it costs more for any particular feature in the township 
high schools than in the city high schools this increase in the cost of 
instruction is not significant unless the excess of cost of instruction 
amounts to more than 13.7 per cent. This has been checked up and 
its influence on the findings is negligible. This would be true in such 
considerations as cost of building, cost of operation of the plant, cost 
of instruction, number of teaching positions, and any other considera- 
tions where quantity is the primary consideration. It would have no 
bearing in a table which indicated the relative efficiency of the various 
groups of high schools in college, for example. 

It is not the purpose in introducing the table at this point to 
discuss matters of enrollment; it is merely introduced to show the 
method of tabulation. The enrollment itself is discussed in Chapter 
IX, which is devoted entirely to that subject. 

An explanation of the terms used in the tables is as follows: The 
median is the middle number in any series of numbers. For example, 
in- Figure 1 the individuals in the series of 25 numbers are represented by 
small projections at the bottom of the bar, and the median is number 13. 



23 



FtfiST Ql/AKnLE 


''-I 




MEDJAtI 


13-^ 


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Figure 1. 

The 1st quartile is that number in the series which enumerates the 
first fourth of the series. This is number 7 in the series represented in 
Figure 1. It is not the quantit_y one-fourth, but the point one-fourth 
the way up the series. The third quartile is that number in the series 
which enumerates three-fourths of the series. It is not the quantity, 
but the point three fourths of the way up tlie series. In the series 
represented in Figure 1 it is 19. 

The median is selected as representing the group most perfectly 
since there are as many cases above it as below it. For example, if the 
median cost of buildings in a certain group of schools is $50,000, that 
represents the situation better than the average because the average i^ 
affected too strongly by a few schools which spend an excessively small 
or an excessively large amount for this purpose. 

The difference between the first and third quartiles is approximately^ 
the "middle 50 per cent." For example, as regards investment in school 
propei"ty in township high schools of Class C in Table II the 1st quartile 
is $56,000 and the 3d quartile is $100,000. To state that the "middle 
50 per cent" of this group of schools invests from $56,000 to $100,000, 
and their mediaii expenditure is $75,000, gives a very definite idea of 
their practice in this regard. In Figure 1 this is shown by the black 
portion of the column. Seven is the first quartile and 19 the third 
quartile. The difference between 7 and 19 is approximately the "middle 
50 per cent." The "middle 50 per cent" in any factor under ^liscussion 
provides a very excellent standard of comparison. 

The quartile deviation is found by dividing the difference between 
the first quartile and the third quartile by two. It shows how far the 
"middle 50 per cent'' varies from the median and is a very important 
measvire of uniformity within a group. 



24 



CHAPTER II. 



THE CONSTITUTIOX OF THE TOWNSHIP HIGH SCHOOLS. 

The first township high school organized in the State of Illinois 
was that of Princeton in 18G7/ The city and environs of Princeton 
were settled largely by old New England stock with all of the traditions 
and customs of those early states. Princeton still retained the town 
meeting form of community management. In addition to this it had 
the tradition that a secondary school, in fact any school, was a com- 
munity matter. There was no academy or secondary school of any 
kind in their midst, and the first proposal for the establishment of a 
high school which would serve community needs came from the pro- 
gressive editor of the Bureau County Eepublican, John W. Bailey, in 
an editorial published on March 1, 1866, entitled "The School Question.'^ 
The editorial commanded attention immediately in the community, and 
the following week a contributed article by John H. Bryant (the poet's 
brother) appeared under date of March 8, 1866. Bryant supported very 
emphatically the editorial of the preceding week and said, "I like the 
idea of a high school for the whole township." Toward the close of his 
article he assumed a position with reference to it which should be that 
of every American citizen when questions of education are involved. 
He said, ''I have no children to send to such a school, but I feel never- 
theless that I have an interest in and advantage to gain by improvements 
of this kind." Since the proposal was in the nature of an innovation, 
the advice of the State Superintendent, Newton Bateman, was sought. 
He was broadminded and foresighted on this subject. He sent a letter 
approving the proposal and encouraged the people of Princeton by 
saying, "It will give you an admirable school system, and you will soon 
have, I am confident, the warm support of all the friends of education 
in the township." A town meeting was held. It will be understood that 
this town meeting was made up of the citizens of Princeton and its 
vicinity and was dominated by such men as the editor of the Bureau 
County Eepublican, the two brothers of William Cullen Bryant, the 
Lovejo3's, and others of like educational ideals and refinement. This 
town meeting passed a resolution, presented by Mr. D. G. Paddock, as 
follows : 

"Wherbia.s, It has become evident that there exists a necessity for 
superior facilities for education in this town; and, 

• Facts regarding the organization of the Princeton Township High School herein reported were 
furnished in an article in School and Home Education in February, 1916, entitled, "The First Town- 
ship High School in Illinois." This was supplemented by additional information provided by Mr. 
H. S. Magill, superintendent of schools of Springfield, 111"., formerly principal of Princeton Township 
High School, and by Mr. W. R. Spurrier, at present principal of that high school. 



25 

"Whereas, Hon. Newton Bateman, Superintendent of Public Instruction, 
has decided that the trustees of each township have power to consolidate 
the districts of the township for high school purposes; therefore, 

"Fesolved, That the legal voters of the township are in favor of the 
establishment of a high school in the township of Princeton at as early a 
date as the same may be obtained; and that it is the sense of the town 
meeting that the trustees of schools of this township be instructed to take 
immediate steps to establish such high school and to devise and carry out 
the appropriate legal measures necessary for such purpose. 

''Resolved, That a committee of seven be appointed for the purpose of 
obtaining an act of the legislators of the State to render effectual the object 
expressed in the above resolution." 

This resolution was carried unanimously, and the following persons 
were appointed on the committee : Rev. F. F. Bascom, J. T. Thompson, 
J, Chritzman, S. G. Paddock, W. C. Stacey, J. H. Bryant, J. V. 
Thompson. 

In due time the township voted for trustees: on the selection of a 
proper site, and for the authorization of borrowing the necessary money 
with which to build a suitable building. The number of votes cast was 
54G, Bascom, Bryant and Chritzman being chosen almost unanimously 
as trustees; the site was selected; fhe loan authorized. The Illinois 
Legislature at the next session in Febiniary, 1867, passed the law legal- 
izing such schools. The text of this law or rather special charter for 
the Princeton Township High School is printed as Appendix A. After 
this law was passed, the necessary loan was secured in the immediate 
neighborhood, and the first township high school was opened in Prince- 
ton in September, 1867. 

Henry L. Boltwood was called from Griggsville, 111., to the prin- 
cipalship of the new school — a most fortunate choice. Few, if any, men 
in Illinois have exerted a wider influence in secondary education than 
the beloved principal of Princeton. As new township high schools were 
organized he was called to initiate their work. He was successively 
principal of Princeton, Ottawa and Evanston. Streator was the second 
township high school to be organized. He did not organize Streator. He 
was thus principal of three of the first four township high schools in 
the State. 

A few sentences taken from the Princeton Catalogue of 1875 are 
illustrative of the conditions in that school in its early years. "The 
school building complete cost about $60,000, and will accommodate 500 
pupils. The grounds, containing about nine acres, are tastefully laid 
out, affording a large playground in the rear and an ornamental ground 
in front. 

"The school was opened in September, 1867, under charge of the 
present principal, assisted by three ladies. At the beginning 138 pupils 
were admitted, 9 of whom were from abroad. Two classes were organ- 
ized, a Junior and a Second Junior. The average age of the pupils 
admitted was 16% years. During the year 174 different pupils were 
enrolled. The tuition received was $250.00." 



26 

"The plan of work requires three full recitations daily. An hour 
is usually allotted to each recitation." 

The organization of the school in Princeton and its immediate 
success resulted in a general law authorizing the organization of town- 
ship high schools. This general law was enacted in 1872 and is printed 
herewith as Appendix B. 

The Township High School Act passed through the same period 
of amendment as the remainder of the school laws of the State until the 
General Eevision of 1909. 

This general township high school law is incorporated in that 
codification (1909) of the school laws in sections 85 to 97 inclusive. 
During the period from 1872 to 1909 the amendments made to the 
Township High School Law were often for the purpose of giving wider 
latitude in the organization of high school districts. For example, the 
provision that a township high school district may be composed of two 
or more school districts is a case in point. There are several others of 
similar character. 

Another township high school law was passed in 1905, because of the 
fact that the general law provided that high schools could be organized 
only under certain conditions, and it was for the purpose of making 
opportunity for the organizing of township high schools more elastic 
that it was enacted. Under this law, however, only two township higii 
schools were organized, namely, Waukegan and Collinsville. It will 
be seen by an examination of the law itself, which is published as 
Appendix C, that its application is also limited. 

In response to a widespread demand for still more elasticity in the 
formation of township high school districts the law of 1911 was passed. 
Because of faulty legal technique the law of 1911 was declared uncon- 
stitutional by the State Supreme Court in October, 1916. The court 
legalized the high schools already organized under it by declaring that 
they would be classed as de facto high schools. It is expected that at 
the present session of the Legislature a law will be passed including aJl 
the remaining territory of the State in an inclusive Township High 
School Law. 

It will thus be seen that there are four pieces of legislation 
authorizing township high schools in Illinois : The Princeton Charter 
of 1867; the General Township High School Law of 1872, which was 
from time to time an.ended and finally included in the General School 
Law of 1909; the law of 1905, and the law of 1911. These four pieces 
of legislation are reproduced in the appendices. 

The several township high school laws are very similar in their pro- 
visions for the establishment of a township high school as distinguished 
from the operation of such a school after its establishment. In every case 
the}^ provide that a petition for the organization of such a school must be 
signed by fifty legal voters in the territory which is to be included in the 
organization. In the general law this petition is made to the townshi]) 
treasurer, and such a petition is presented to the school trustees who arc 
required to call an election to determine whether the township high 
school shall be organized. In the law of 1905 and also in that of 1911 
the petition is made out to the county superintendent, and he orders the 



27 

trustees of schools to conduct this election. For detailed information a; 
to this organization see the laws themselves in the appendices. 

As pointed out in an earlier paragraph, there are four different 
types of organization possible under the four laws. Under the provisions 
of the General Township High School Law the board of education con- 
sists of five members, elected for a period of three years each. The board 
elects its president from its own number, and may elect a secretary from 
outside its membership. Under the provisions of the act of 1911 the 
board is composed of six members and a president. The president is 
elected annuall}^, and the members for a period of three 3'ears each. 
Under the act of 1905 the membership of the board of education is de- 
termined by the proportion of the population in the various districts 
under twenty-one years of age. The members of this high school board 
are elected by the boards of education or boards of directors in the sub- 
sidiary school districts. The board organizes by electing one of its own 
members president, and it nuiy elect a treasurer and also a clerk from 
outside its own membership. 

As to the powers and duties of the township high school boards of 
education under these various acts, the provisions are very general in 
their nature. The general law provides that the board of education shall 
have the power of school directors, the law of 1911 that they shall have 
the power and duties of boards of education. It is somewhat remarkable 
that the one law provides that the schools under it, some of them having 
over 1,000 students each and located in large cities, are to be governecl 
by the same regulations as one-room country schools, and that the other 
makes applicable to schools under it the rules devised for the government 
of large city school systems. The law of 1905 does not make a definite 
statement as to the powers and duties of boards of education but leaves 
the matter for interpretation in the light of the General School Law. 
All of these laws, except that of 1905, give the township high school 
boards of education- the same authority to tax the districts under their 
jurisdiction as other school boards. This taxing authority comes from 
section 189 of the General School Law which provides that; "The* 
directors or the board of education and the authorities of such village or 
city, as the case may be, shall be authorized to levy a tax annually upon 
all the taxable property of the district, village or city, not to exceed as 
hereinafter stated II/2 per cent for educational and 1^^ per cent for 
building purposes upon the valuation to be ascertained by the last assess- 
ment of city and county taxes." On this point the law of 1905 provides 
that the township high schools which are organized under this act shall 
have authority to levy one-half the amount determined upon for the 
other township high schools by the General School Law. 

In this study we are very definitely interested in the fact that the 
township high school laws provide for school units of larger area than 
those for elementary schools. By an examination of the General Town- 
ship High School Law, specifically sections 86, 87, 88, 89, 90 and 93, we 
find that this law authorizes eight different kinds of high school districts : 

1. A school township. 

2. Two or more adjoining townships. 

3. Two or more adjoining school districts. 



28 

4. Parts of adjoining townships. 

5. The remainder of a township part of which has heen organized 
into a township high school. 

G. A school district having a population of 2,000 or more. 

7. A city and a township. 

8. Part of a school^ township divided by a navigable stream. 

As noted above, this general high school act was not elastic enough 
to provide for all communities, hence, the act of 1911 was passed so that 
high school districts might conform to the natural boundaries made 
necessary by the distribution of population and by the conditions of 
transportation. The act of 1911 authorizes two classes of high schools: 

1. A school township that has within its borders a school district 
with a population of 1,000 or more and not exceeding 100,000 inhabit- 
ants, as provided by section 1. 

2. Any contiguous and compact territory whether in the same or 
different townships, as provided by section 6. 

It will be seen that section G provides very specifically for a high 
school district based upon the needs of the community and the natural 
limitations imposed upon it by its geographical situation and by the 
conditions of transportation. As a matter of fact, in the organization of 
high schools under this act such territory has usually had in it a city or 
village as a pivot of the community. There are, however, a number of 
rural districts. 

The territorial organization is also affected by the conditions under 
which the township high school district when once organized may annex 
territory. Under the provisions of the general law additional territory 
may be annexed provided that first 5 per cent of the legal voters in the 
township high school district and also 5 per cent of the legal voters m 
the territory proposed for annexation petition for such annexation. 
Upon the filing of such a petition it is the duty of the township treasurer 
of the respective territories involved to bring the matter before the school 
trustees, who will call an election to vote for or against such annexation. 
Both the high school district and the territory to be annexed must vote 
in favor of such annexation before the annexation becomes valid. 

In the act of 1905 annexation may be accomplished by concurrent 
resolution of the township high school board and the boards of the school 
districts proposed to be annexed. This joint resolution, however, must 
be ratified by the voters in the high school district and also in the dis- 
trict proposed to be annexed. Exactly the same provisions are incorpo- 
rated in the act of 1911. 

As to the rapidity with which high schools have been organized 
under these various acts, it is in point to quote from a letter written 
by J. C. Thompson, attorney for the State Department of Public Instruc- 
tion, under date of April 25, 1916, as follows: 

"There are now 265 township high school districts, divided as follows: 

Special Charter ( Princeton ) 1 

General School Law 71 

Act of 1905 2 

Act of 1911 191 

Total 265 



29 

"The question 'to establish' is now pending in more than 40 commu- 
nities. 

"The first township high school w'as established by virtue of a special 
charter at Princeton in 1867. The first township high school, according to the 
General School Law, was established at Streator in 1875. The first township 
high school was established, pursuant to the act of 1905, at Waukegan in 
1905. The first township high school was established at Waynesville, in 
consequence of the act of 1911, in 1911. 

"The high school movement has appropriated a number of smaller 
academies and seminaries. The Waynesville Township High School is con- 
ducted in the Waynesville Academy. The Westfield Township High School 
is conducted in the Westfield College. The Toulon Township High School is 
conducted in the Toulon Academy. 

"Township high schools are now considered community high schools. 
The districts are formed of contiguous and compact territory, with a city 
or village as the axis of the district. The high school usually respond to the 
wishes and convenience of the several communities. At Ashley and East 
Lynn the high school buildings have been constructed jointly with the 
common school district. At Thebes, the common school district owns the 
site and first story, the high school owning and occupying the second story 
for high school purposes. At Cabery and Roberts the buildings are erected 
together, or rather, side by side, forming one structure. A number of the 
high school districts rent suitable rooms for high school purposes." 

The chief characteristics resulting from the legislation above re- 
viewed are as follows : In the first place, the board of education, as in 
all cases except the two schools under the provisions of the act of 1905, 
is composed of a small number of men — either five or seven members. 
These boards of education have their attention concentrated entirely 
upon the problems of secondary education. They are not distracted 
from their task by considerations which must influence boards who sur- 
vey the whole field of education. Furthermore, their funds can be con- 
centrated on the single problem of secondary education, since an in- 
creased rate of taxation is provided for the benefit of high schools 
coming under this law. The ordinary school district in the State of 
Illinois and in other states is provided with a definite rate of taxation 
for such districts whether or not they make full provision for the needs 
of secondary education. When the high school and the elementary school 
are separated under the provisions of the township high school acts, the 
elementary school districts have authority to levy the full rate of taxation 
which any district may levy, and use such funds. In addition to this the 
township high schools which cover the same territory have authority to 
levy a tax equal in amount to that which may be collected by any school 
districts in the State. The total effects of these provisions in taxation 
are to double the funds available for educational purposes and to cen- 
tralize the expenditure of the funds provided by the township high 
school upon the development of high schools. 

In view of the fact that secondary education in the last half century, 
particularly in the last decade, has expanded enormously in the number 
of pupils involved and in the scope of the instruction provided, as well 
as in the variety and volume of equipment, questions of revenue have 
become acute. In the ordinary district in Illinois revenues are exactly 
the same as those provided when the school system was immeasurably 
simpler. Under the township high school acts districts can secure enough 
additional school money to provide adequately for the high schools. In 



30 

addition to providing thus for separate funds for elementary schools and 
high schools, the township high school forms a new territorial unit of 
large area. Thus a greater assessed valuation is drawn upon for the 
support of a single school. All the advantages of consolidation are thus 
secured. 

Finally the township high school acts give an opportunity througli 
the provision for the larger unit for a concentration of the students who 
are accessible to any center of population. The advantages of this larger 
organization are numerous. Better equipment can be had; bettei' 
teachers can be employed; and the whole community can be served 
through the organization of a community unit. 

There are also some marked disadvantages resulting from this type 
of school organization which should be noted. It breaks in two what 
should be a single system. This double control finds its weakness not so 
much in friction between the two parts, since they work quite as har- 
moniously as in cities where the elementary and high schools are parts of 
the same system, but in the difficulty, (1) of articulating the courses of 
study, (2) of unifying the supervision of the progress of pupils through 
the schools, and (3) of eliminating waste in providing equipment and 
supplies. 

Care should be taken at this point to note that the double control is 
not competition, since the division is horizontal and not vertical. The 
two systems when operating under this plan do not parallel each other's 
work. 

However, the advantages mentioned are so positive that the diffi- 
culties though real have been minimized somewhat in the administration 
of this group of schools. 

The township high school type of organization with its advantages 
and disadvantages presents a very desirable phase in the evolution of 
education in Illinois. A more complete discussion of these matters is 
taken up in a later chapter. 

Experience has proved as a result of these various enactments that 
no artificial political boundary lines should govern the metes and bounds 
of a township high school' district. They should be determined entirely 
by the distribution of population, by the configuration of local geography 
and by the conditions of transportation. It is this feature of the town- 
ship high school together with its added opportunity for school revenue 
which should be insisted upon and expanded. This matter will be 
discussed in more detail in a later chapter. 



31 



CHAPTER III. 



THE PLANT. 



SITES AND BUILDINGS. 

In recent years the high school building has become in many 
communities the object of great civic pride. This is due to the fact that 
more and more the American people are devoting themselves to the 
highest ideals of education. It is also due to the fact that upon no other 
institution is it quite so fitting to bestow its complete affection. Nearly 
every other institution appeals to a part of the community and not to all 
of it. Because of this fact the people often vote taxation upon them- 
selves to embellish and decorate the building and grounds. Further 
than this, the rapid development of educational demands and the great 
variation in the kinds of work done in the high school have made neces- 
sary a large increase in the expenditures upon the building and site of a 
modern high school. For these reasons a building movement represents 
in a sense a crisis in a community. It is the subject of long and vigorous 
discussion. Sometimes the agitation results in bitterness and in con- 
tention. Disagreements seldom come from a discussion of the advis- 
ability of having a high school, but they arise out of differences of 
opinion as to its extent and its cost. The reason for this is that there 
are no adequate standards which will exactly determine the amount of 
money that should be expended for a liigli school of a given size. There 
are not even comparative standards published in such form that they 
might be available to high school districts entering upon this greatest 
enterprise which it may undertake. For these reasons it is all the more 
necessary that a study should be made of the high school plants that are 
now existing, with an idea of discovering their extent but with a distinct 
purpose to have definite information in regard to their cost. 

The school corporation about to undertake a new high school needs 
all the information it can secure in setting the size of its bond issue, in 
determining the amounts that it will s}>end, in deciding upon the 
character of the building and upon the extent and quality of its equip- 
ment. It is not sufficient to estimate the needs of a community in this 
respect by pointing to the procedure followed in another community, 
because of the fact that another community may have different needs, and 
different conditions may determine its policy. Furthermore the cost of 
construction in one community is different from that in another. The 
board of education and its responsible agents in investigating this propo- 
sition should not accept the statements of architects, contractors and 
others who are interested in the construction of the building itself and in 
the selection of a site. These questions should be determined, as indi- 
cated above, upon a thorough study of the local situation and an accurate 



33 

comparison of the needs of the community in question with the general 
practices found in communities covering a wide territory. For example. 
Community A possesses a high school having from 300 to 300 pupils en- 
rolled, and it has constructed a high school costing we will say $100,000. 
Community B is another community having a high school of similar size, 
and has constructed a high school costing $50,000. Which procedure is 
correct ? Has Community A spent too much or has Community B spent 
too little? It is obviously bad practice to follow the example of any 
particular community. If possible, it should be determined what is the 
typical amount of money expended in schools having the enrollment 
given. Even when the typical expenditure for schools of a given size has 
been determined, other factors must be studied. For example, in the 
State of Illinois the cost of construction in the northern part of the State 
is much higher than in the southern part of the State. The cost of a 
high school plant in an industrial community where, large demands are 
made for vocational education, necessarily must be much higher than 
in a community which has the traditional point of view. If a school 
expects to give wide latitude in electives this again legitimately in- 
creases the cost of construction. If the community expects to prepare 
its students for later technical work of various kinds, this is another 
added cost. In a word, the policy which is here advocated is that every 
building enterprise should be preceded by a careful investigation of 
the present and prospective needs of the community. This should 
include as careful an estimate as possible as to the probable growth 
of the school. This estimate of the probable growth must be based not 
only upon the natural expectation in the increase of population but also 
upon the present tendency in secondary education for high schools to 
grow much more rapidly in proportion to the population than heretofore. 
It should be noted in this connection also that the mere fact of the con- 
struction of a modern high school creates an added demand for the work 
which it makes possible. It is the experience of many communities that 
as soon as a well appointed high school building is constructed it is 
used to capacity. In fact, there has been throughout the country in 
recent years deplorable shortsightedness in the construction of high 
school buildings that are almost never constructed large enough. The 
result is that scores of plants all over the country have been obliged in 
recent years to make additions which are not symmetrical with previous 
construction. It is the purpose of the present chapter to reveal the 
situation in Illinois as to the capital investments in high school plants, 
with considerable attention to a comparison of the expenditures made 
by city high schools as compared with township high schools, as outlined 
in Chapter I. 

In Table II is exhibited the amount of money invested in sites and 
buildings in 156 high schools in the State of Illinois. 

In this table the number of high schools having investment of 
various amounts are grouped. The first group shows those high schools 
expending $1,000 to $5,000, the second group those from $5,001 to 
$10,000, and so on. Eeading down the left hand side of the table in the 
first vertical column, the sizes of the various classes of high schools are 
indicated — Class A having an enrollment of 1 to 100; Class B, 101 to 



33 





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34 

200, etc., as shown in the table. The next vertical column shows which 
of the groups of high schools are tabulated, namely, city high schools 
and township high schools. The entire number of high schools, both 
city high schools and township high schools, is shown in the third 
vertical column. For instance, in Class A there are 19 city high schools 
and 29 township high schools, making a total of 48 high schools alto- 
gether in Class A. Reading the table from right to left there are 5 city 
high schools of Class A having an investment of $1,000 to. $5,000, G 
having an investment of $5,001 to $10,000, and so forth. There are 
3 township high schools of Class A having an investment of $1,000 to 
$5,000, 6 township high schools having an investment of $5,001 to 
$10,000, and so forth. There is a total of 7 high schools in Class A 
having an investment of $1,000 to $5,000, 12 having an investment of 
$5,001 to $10,000, and so forth. Going to the bottom of the table it is 
noted that there is a total of 81 city high schools and 75 township high 
schools, making a total of 156 high schools included in this table. 

The question may be raised at once, how is it possible even for a 
small high school to have so small an investment in a building as $5,000 ? 
This is due to the fact that in many schools in the State of Illinois the 
high school is conducted in a certain portion of a building designed 
primarily for elementary school purpeses, and this capital investment in 
the high school building in Classes A and B refers to that proportion of 
the investment which is used for high school purposes alone. By re- 
ferring to Table XI it will be noticed that in city high schools of Class 
A 89.4 per cent of the high schools have no building of their own but 
depend upon the elementary schools for their quarters. A smaller per 
cent of the township high schools in Class A (38.3) are similarly 
dependent upon the elementary schools. In Class B 80.8 per cent of the 
high schools are dependent upon the elementary schools for room, and 15 
per cent of the township high schools in this class are similarly dependent 
upon the elementary schools. In Class C only 19 per cent of all the higli 
schools, both city and township, are so dependent. In every case in 
Class D and E the high schools have their own buildings. 

By referring to the horizontal column marked "total" in Class A, 
Table XXIII, it will be seen that in Class A a median of 3 rooms is set 
apart for the use of the high school. In Class B a median of 6 rooms is 
set aside for the use of the high school. These facts account for the few 
cases of small investment in high school buildings and grounds shown 
particularly in Classes A and B. 

Looking at the other end of the table it will be noticed that some 
high schools have plants costing large sums of money. For example, 
there are 6 city high schools and 3 township high schools having an 
investment in sites and buildings of over $250,000 each. There are 6 
high schools in the State having an investment of between $300,000 and' 
$350,000. This table is so constructed as to show the average investment 
in city high schools and in township high schools in each of the various 
sizes of high schools. It also shows the medium investment. In addi- 
tion to this, the first quartile, the third quartile and the quartile devia- 
tion are also shown. The purpose of this is that anyone who is interested 



35 

in looking into the capital investment in any group of high schools may 
discover the characteristic situation. For example, it will be noted that 
in high schools having an enrollment of between 200 and 300 the median 
investment in sites and buildings is $60,000 ; the first quartile is $45,000 ; 
the third quartile is $93,500; the quartile deviation is $24,250. If a 
community is on the eve of a new construction and if it is a school of 
this size, these facts will be very significant, and they should be inter- 
preted in the light of suggestions made above, that is, geographical loca- 
tion of the community as regards its nearness to a metropolitan district, 
which would increase its cost, since considerations of vocational educa- 
tion and wide electives would have a bearing. This table shows that 50 
per cent of the city high schools of this gi'ade invest from $45,000 to 
$93,500 with a median investment of $60,000. It is fair to assume 
that if a school expends less than $45,000, it is probably not providing 
adequate facilities. If it is expending over $93,500, it is providing for 
a future, which is perfectly legitimate, or it is providing unusually good 
facilities in the way of adequate preparation for vocational and special 
education. The fact is that about the best range for expenditure for a 
progressive high school, and yet one that wants to be conservative, is that 
limited by the median and the third quartile, namely, $60,000 to 
$93,500. 

The facts embodied in Table II are displayed in graphic form in 
Figure 2. 

On the left hand side of this figure is a scale beginning with $25,000 
and extending to $650,000. At the bottom of the graph the schools of 
various sizes are indicated, that is 1 to 100, 101 to- 200, and so forth. 

Immediately above each of these groups bars are drawn to repre- 
sent the range of expenditure from the first quartile to the third quartile, 
in other words, approximately 50 per cent of the cases. The hollow bar 
represents the city high schools, the solid bar represents the township 
high schools. On each bar is marked the median. The amount of money 
which the median indicates is shown in the scale at the right of the 
figure. The table shows and the graph indicates in a very clear fashion 
the increased cost for sites and "buildings as the size of the school in- 
creases. For example, a school having an enrollment of from 200 to 300 
pupils typically expends twice as much on its buildings and grounds 
as a school having from 100 to 200 pupils — $60,000 in the former case 
and $30,000 in the latter case. This median expenditure goes on up and 
is $100,000 in the case of city high schools in Class J) and $227,795 in 
the case of Class E. 

We started out in this discussion with a distinct aim of discovering 
the relative situation of township high schools in these various factors as 
compared to city high schools. In this table and in this gi'aph it is very 
clear that the township high schools have much larger sums of money 
invested than the city high schools. The median expenditure of the 
township high school is usually 25 per cent greater than the city high 
school. The quartile deviation in the case of township high schools is in 
every case larger than in the case of city high schools. This is indicative 
of the fact that the township high schools vary in their practice to a 
much greater extent in the respect of buildings and grounds than the 



36 



yso. ooo 








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Fig. 2. — Value of School Prop- 
erty — Sites and buildings. The 
liigh schools are classified at the 
bottom according to the number 
enrolled. The upright bars repre- 
.';ent the range of investment from 
the first quartile to the third quar- 
tile ; the hollow bars represent the 
city high schools and the solid bars 
the township high schools. M rep- 
resents the median investment in 
each case. An equalized scale of 
the amount invested is shown at 
the left and a scale of the medians 
at the right. 



37 

city high schools. It indicates a tendency to build for their own needs 
more independently than to take their plans from the practices in other 
communities. This matter of the quartile deviation should be followed 
very carefully throughout the remainder of this investigation, as it will 
be found to be a distinct characteristic of township high schools. The 
larger investments in the school plant on the part of township high 
schools, as shown in this table and graph, are seen in even greater relief 
in Classes B, C and D, because of the fact that in these three classes the 
number of schools in each group is relatively the same but the amount 
of money is markedly more in the case of township high schools as com- 
pared with city high schools. Throughout this study the median is used 
largely as the measure of central tendency. Very often, as in this case 
also, the average is shown, and an examination of the average reveals 
exactly the same facts. 

Table III is constructed in exactly the same fashion as Table II 
except that the source for the material comes from the Approval Blank 
instead of from Form 8. 

It will be noted that in the smaller schools the figures are larger, 
the medians are larger, the quartiles are larger in general; averages are 
larger. This is due to the fact that the approval blank is sent in by 
high school principals and superintendents for the purpose of securing 
recognition for their high schools. This fact produces a tendency in 
the case of smaller schools in the mind of the reporting officer to magnify 
the amount of money invested in the school. It will be noted that in 
the larger schools the amounts of money reported are no larger than in 
Form 2, and in some cases smaller, because of the fact that in these 
larger schools the reporting officer has no motive to magnify the sums 
of money invested, as his accrediting relations are in no case endangered. 
Since the information coming from Form 2 is checked in various official 
channels by the township treasurer and by the county superintendent 
before it reaches the State Superintendent, the figures are probably very 
much more accurate. The point in introducing Table III is that it is 
another soui'ce of information, and, though it has this variation due to 
the motive suggested, it reveals exactly the same situation as was dis- 
closed in Table II. In other words, in every respect it is a confirmation 
of the conclusions reached in the discussion of Table II. 

EQUIPMENT. 

The plant is incomplete without adequate equipment. Sometimes a 
community exhausts its financial resources in providing a plant and has 
not had the foresight to plan for equipment. Sometimes a bond issue 
which is sold for the definite purpose of providing a plant and equipment 
is exhausted and has to be replenished from current taxation in the con- 
struction of a building and the purchase of a site, whereas the school 
suffers in efficiency when definite provisions are not made for the pur- 
chase of appropriate equipment. 

By equipment we mean furniture, laboratory apparatus and such 
other material as becomes a permanent part of the operation of the school. 
We do not have reference to supplies such as chalk, paper, stock for 



38 



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domestic science and manual training, or other articles which are con- 
sumed in the using. We refer to those items which become a permanent 
feature of the school and are used year after 3'ear. The amount of money 
invested in permanent equipment in all tax-supported high schools in 
the State of Illinois is reported to the State Department in Form 2, 
Section B of Question 18. This information is tabulated in Table IV. 

Here it is shown that 327 city high schools and 96 township high 
schools, making a total of 423, have reported this item. The amount of . 
money expended for equipment is arranged in groups — $100 to $250, 
$251 to $500, as shown at the top of the table. The left hand portion of 
the table is constructed in exactly the same manner as Table III. It will 
be seen in this table that there are 52 city high schools of Class A which 
expend from $100 to $250, whereas only 3 township high schools of this 
class have expended an amount so small. ISTote that in Class B no to^vn- 
ship high school has expended less than $1,000 for equipment. Three 
city high schools and 5 township high schools have expended over $30,000 
for equipment. Various other interesting comparisons may be made by 
a study of the table in detail. The facts revealed in Table IV are shown 
in graphic form in Figure 3. Figure 3 is constructed in exactly the same 
fashion as Figure 2. 

By an examination of the table and by referring to the graph it is 
again very evident that the expenditures for equipment increase very 
rapidly as the size of the school increases. This increase is almost 
proportional to the increase in the size of the school until we reach 
Class D (that is, in schools above 300 enrollment) when the increase in 
expenditure proceeds much more rapidly than the increase in enrollment. 
We find a situation here exactly similar to that in regard to investment 
in sites and buildings, that is, that the township high schools have much 
larger sums of money invested than the city high schools. Here again 
the quartile deviation is larger in the case of township high schools in 
every case, except Class C, than in the city high schools. This again 
shows variation in practice on the part of the township high school and 
a tendency to depart from the custom of schools of their corresponding- 
sizes. 

The information sho"\vn in Table V is compiled from the Approval 
Blank. 

In this table as in Table III the amounts indicated are larger in 
the case of the smaller schools, that is, the medians, quartiles and averages 
are all larger. This again is ascribed to the tendency on the part of the 
reporting officer to magnify the amounts of money invested in his equip- 
ment, since it is necessary for him to make as good a showing as possible 
to secure recognition. I wish to say in this connection that this tendency 
is probably due to no intentional purpose of exaggeration. Here, as m 
the first case, larger schools do not magnify amounts of money involved; 
in fact, in some cases the sums are reported smaller. However, the table 
in general confirms the conclusions derived from a consideration of Table 
IV — that is, that the expenditures increase rapidly with the increase in 
enrollment, that the larger sums of money are spent by the township high 
schools for equipment, the quartile deviation is larger in the case of 
township high schools than in city high schools in every case. 



40 



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Fig. 3. — Capital Investment — 
Equipment. The high schools are 
classified at the bottom according 
to the number enrolled. The up- 
right bars represent the range of 
investment from the first quartile 
to the third quartile ; the hollow 
bars represent the city high schools 
and the solid bars the township 
high schools. M represents the 
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43 

The information shown in Table VI is taken from Form 2, and 
represents the total capital investment, that is, the entire amount of 
money invested in sites, buildings and equipment. It is the sum of the 
amounts of money displayed in Table II and Table lY. 

The construction of the table is exactly similar to the tables pre- 
viously canvassed. There are 327 city high schools and 96 township 
high schools, making a total of 423, making this report. It will be noted 
that there are 14 high schools in the State having a total investment of 
OA'Cr one-quarter of a million dollars each. Beginning with Class C in 
each group, as verified in a later table, the high schools pretty generally 
have their own building, grounds and equipment. We note in the city 
high schools of Class C that the median expenditure is $54,000, and 
the middle 50 per cent of this group have invested from $31,000 to 
$100,000. The township high schools of this group have a median 
investment of $79,000, whereas the middle 50 per cent have invested 
from $52,500 to $100,350. Every other group examined in the same 
way will reveal the same type of information. The table confirms and 
emphasizes the facts shown in the preceding ones, as it would neces- 
sarily do since it is the sum of the amounts considered in the former 
cases — that is, the amount invested increases rapidly with the increase 
in enrollment, the township high schools in all categories have invested 
larger sums of money than the city high schools, that the quartile devi- 
ation is larger in every group in the township high schools than in the 
city high schools. 

MAIXTEJ^ANCE OF THE PLANT. 

After the plant is constructed and the school is in operation its 
maintenance becomes a pressing and permanent problem. Very often in 
the administration of schools there is no consistent policy in this matter. 
Plans are made in a haphazard manner at the conclusion of a school 
year or during the vacation period for the renovation of the plant in order 
to get it ready for operation the following year. Very often needed repairs 
are neglected and the plant deteriorates. Again changes and alterations 
are made with no very clear foresight as to the future needs of the school. 
Very often alterations are omitted which might contribute very materially 
to the success of the school. Furthermore there is often negligence in 
keeping a separate account for this fund so that the board and the super- 
visory officers may have definite knowledge as to the events of the past in 
this respect. It is only by studying the past history of the local institu- 
tion and a careful prognosis of its needs in the future that the matter of 
maintenance of the building can be managed in an efficient manner. In 
managing the fund that will be used for this purpose it is necessary that 
the school authorities have a very clear idea as to the items which should 
be charged against this fund. Supplies which are consumed in the using 
do not properly belong here. Permanent improvements which are in the 
nature of additions to the plant do not belong here. Only those items of 
expenditure which replace parts of the building which have been worn 
out or destroyed should be included. Repairs, replacement of equipment, 
insurance, etc., belong in this fund. Many commercial institutions reg- 



44 







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9% 




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co'io" 




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$ 1,200 
27,750 

29,000 
58,500 

100,000 
100,350 

163,100 
256,041 

307,000 
699,225 




First 
Quartile. 


$ 300 
2,061 

1,250 
28,000 

31,000 
52,500 

70,000 
80,500 

139,163 
161,500 




a 


$ 500 
12,000 

2,500 

47,875 

54,000 
79,000 

115,000 
170,000 

245,250 
559,000 




1 ■ 


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16,925.36 

15,084.91 
43,895.41 

61,803.63 
75,822.85 

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965,669 


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231,194 


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1,419,725 


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45 

ularly charge off against their buildmg a certain percentage of their 
capital investment for depreciation. Very often this figure is set at 
5 per cent of the capital investment, the corporation going on the 
assumption that the plant should be completely replaced by this fund in 
the course of twenty years. It is the custom in this connection to 
accumulate a fund which will be used for maintenance purposes. 

In the administration of a public high school considerations such as 
the foregoing should influence the practice of the institution. If the 
school authorities have studied the situation thoroughly, as suggested 
above, the past history of the institution and a well-considered plan for 
the future will guide the policy. The great need which has heretofore 
been lacking to school authorities is definite information as to what other 
institutions have been able to do in this respect. When an institution is 
considering this problem it would throw considerable light on the sit- 
uation if the institution was able to refer to the practice of other institu- 
tions of its rank and grade and to know what they were able to do in 
this regard. It is witli this in mind that the information provided in 
Question 45 of Form 2 was assembled and tabulated. This information 
is shown in Table VII. 

The various groups of schools are arranged in this table according 
to the plan heretofore followed. The amounts of money involved are 
grouped at the top of the table in sums as follows : $1 to $100, $101 to 
$200, $201 to $300, etc. There are sho^vn in this table the maintenance 
costs of 320 city high schools and 81 township high schools — a total of 
401 high schools, a large enough number on which to base conclusions 
with considerable confidence. It will be noticed that there are 145 city 
high schools of Class A whose maintenance cost is from $1 to $100, and 
12 township high schools having a similar cost. In Classes A and B 
there are a considerable number of high schools with a very low main- 
tenance cost. This is due to the fact that many of these high schools are 
quartered in elementary school buildings, as is shown in Table XXIII. 
It will be noticed also that there are 3 high schools in the State which 
have a maintenance cost of over $5,000. 

To illustrate the statement previously made about finding in this 
table some information as to the custom of other high schools, we may 
take Class D as an example, wherein the enrollment is from 301 to 500. 
It will be noted that the median maintenance cost for city high schools in 
this group is $800. The middle 50 per cent of this group of schools 
expen-d from $237 to $1,351 annually in maintaining the building. The 
median maintenance cost of the township high schools of this group is 
$1,755. In this group the middle 50 per cent expend from $792 to $3,465 
annually. A school then that expends less than $237 is very likely 
miserly in its policy in this respeot. If it expends more than $3,465 
annually, it is very likely that there is some unusual and extraordinary 
expense involved. A larger expenditure than this sum would demand 
a special explanation, which could often be justified. A progressive 
institution could very well feel then that it was neither miserly nor 
extravagant if its annual maintenance cost lay between the figures $1,755 
and $3,465, i. e., between the median and third quartile of this group. 
The facts given in Table VII are shown graphically in Figure 4. 



46 



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47 



In this graph the increase in the maintenance cost as the enroHment 
increases is very marked. This graph is constructed on the same prin- 
ciples as the others. An equalizing scale lies to the left of the figure and 
a scale of medians on the right. The hollow bars represent tlie city high 
schools and the solid bars the township high schools. In every category 
the township high schools surpass the city high schools in maintenance 



Fig. 4 — Maintenance of 
Plant. The high schools are 
classified at tlie bottom accord- 
ing to tlie number enrolled. The 
iipriglit bars represent the sums 
expended for maintenance an- 
nually from the first quartile to 
the third quartile ; the hollow 
bars represent the city high 
schools and the solid bars the 
township high schools. M rep- 
resents the median annual ex- 
penditure in each oase. An 
equalized scale of the annual 
expenditure is shown at the left 
and a scale of the medians at the 
right. 



4-00O 










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2430 


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1 lot 201 301 501 

TO TO TO To ftHD 

100 200 300 5oo OVER 



cost. By referring again to the table it is noted that the quartile devi- 
ation in the case of the township high schools is greater than that of the 
city high schools. Here again is shown the variation of the to\vnship 
high schools from the practice of city high schools of their own grade 
and group. 



48 

OPEEATION^ OF PLANT. 

The next logical topic in the consideration of the plant is its opera- 
tion. This is discnssed under two heads: (a) Expense covering the 
salaries of janitors, engineers, and so forth; (b) Expense covering neces- 
sary materials such as fuel, water, light, power, janitor's supplies, and 
so forth. 

Because of the large quartile deviation shown in the tables following 
on this topic it will be seen that this matter of the operation of the high 
school has not been very thoroughly standardized. Boards of education 
and school authorities in general are often in a quandary as to just the 
proper amount of money justifiably spent in a matter of this kind. There 
is such a wide field of expenditure coming under this head and so many 
important considerations in it that it is difficult to formulate a pro- 
gressive and yet a sane policy. If the expenditures are curtailed to too 
great an extent, the sanitation of the building and consequently the health 
of its occupants is likely to suffer. On the other hand it is very easy to 
squander money in useless expenditures at this point. Here again 
progress will be made toward a proper standardization of this matter by 
an investigation of the practice of other schools. 

Table VIII is a qompilation of the statistics in this matter pertain- 
ing to the money spent in the Illinois high schools for janitors, engineers, 
and so forth. 

The expenditures are grouped in the various sums, $1 to $100, $101 
to $200, etc., as shown at the top of the table. The distribution of the 
various groups of schools follows the same general plan as that heretofore 
followed. It will be noted that a large number of schools in Classes A 
and B have an exceedingly small expenditure, due to the same fact noted 
in the preceding table that the high school is quartered in the elementary 
school building. Following the previous custom, we may here again get 
an idea as to what is the proper policy by examining the situation in a 
single class. Take Class D, for example. City high schools of this class 
have a median expenditure for janitors, engineers, etc., of $1,350. The 
middle 50 per cent of schools of this group expend from $1,049 to $1,735 
annually. The township high schools have a median expenditure of 
$2,000. The middle 50 per cent have expended from $1,245 to $4,079. 
Again we may very properly say that a progressive school might feel that 
its expenditures were well within the limits of good practice as set by 
schools of its own group if it expended a sum annually as limited by the 
median and the third. quartile or from $2,000 to $4,079. The facts in 
this table are shown graphically in Figure 5. 

This graph in conformity with those preceding, shows that the ex- 
penditures for this item increase directly with the increase in enrollment 
and that the expenditures of the township high schools on this item are 
higher than those of the city high schools in every group. Here again 
the quartile deviation of the township high schools is greater than that 
of the city high schools in every group except Class B. 

The second large subdivision in the operation of the plant is that 
covering the expenditures for necessary materials, such as fuel, water, 
light, power, janitor's supplies, and so forth. The expenditures under 



49 



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50 



this head are more thoroughly standardized than in the preceding as 
shown by the fact that the qnartile deviations are not so large. Table 
IX covering these expenditures is made up in exactly the same manner 
as the preceding one. It will be noted that 169 city high schools of Class 
A expend $1 to $100 per annum, and that 12 township high schools spend 
a similar amount. There are 2 city high schools and 5 township high 
schools, making a total of 7 high schools in the State, which have an 



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Fig 5. — Operation of the Plant — 
Janitors, engineers, etc. Tlie high 
schools are classified at the bottom ac- 
cording to the number enrolled. The up- 
right bars represent the annual expend- 
iture for operation from the first quartile 
to the third quartile ; the hollow bars rep- 
resent the city high schools and the solid 
bars the township high schools. M repre- 
sents the median annual expenditure in 
each case. An equalized scale of the an- 
nual expenditures is shown at the right 
and a scale of the medians at the right. 



annual expenditure of over $5,000 under this head. The facts set forth 
in this table are shown graphically in Figure 6. 

The same general trend is noted here as in all of the preceding tables 
thus far, namely, tliat larger sums are expended in the township high 
schools for this purpose than in the city high schools, in every group. 
The quartile deviations are greater in the case of township high schools 
in everv group than in the city high schools. School authorities who 



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Fig. 6. — Operation of the Plant — 
Fuel, water, supplies, etc. The high 
schools are classified at the bottom ac- 
cording to the number enrolled. The 
upright bars represent the annual ex- 
penditure from the first quartile to the 
third quartile ; the hollow bars repre- 
sent the city high schools and the solid 
bars the township high schools. M 
represents the median annual expen- 
diture in each case. An equalized scale 
of the annual expenditure is shown at 
the left and a scale of the medians at 
the right. 



53 









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54 

wish to compare their own expenditures under this head with those of 
other schools can very readily adopt a plan suggested in the previous 
table of noting the expenditures of the schools of their class. They can 
note the median expenditure and that of the middle 50 per cent, compare 
their own expenditures with these amounts and consider the various 
factors that enter into their own situation, and thus reach a satisfactory 
conclusion as to their own policy. 

In Table X the expenditures for janitors, engineers, etc., and that 
for materials such as water, light, power, janitor's supplies, etc., are 
added together, showing the total cost for the operation of the plant. 
Because the two tables have exactly the same features and trend no new 
information would come from a consideration of Table X. It is val- 
uable principally as furnishing a set of totals. 

It is possible by a study of this table to find out the complete cost for 
operating the plant. This is sometimes very desirable. For example, 
taking Class D as heretofore, it is noted that the median total cost for 
operating city high schools of this group is $2,390. The middle 50 per 
cent of schools of this group expend from $1,516 to $3,805. The median 
total expenditure for operating township high schools of this group is 
$3,256. The middle 50 per cent expend from $2,120 to $8,297. Look- 
ing at the other part of the table it is to be noted that 16 high schools in 
the State expend over $5,000 annually for operating the plant. 

CHAEACTERISTICS OF THE PLANT. 

After we have given full consideration to the site and the building 
and their cost and have given particular study to their maintenance and 
operation, the next question that arises is as to the characteristics of the 
plant. Great variation necessarily will be noted under this head. Some 
institutions have a great variety of features which are designed to accom- 
modate the pupils and the community. Others will be conservative on 
this, and if we make a proper estimate of the plant, we do not get a com- 
plete understanding of the matter until we have studied this topic. 

In the routine blanks on tile in the office of the Superintendent of 
Public Instruction in Illinois there is no detailed information, however, 
that is sufficient to give us a very adequate conception of what the situa- 
tion is in the various groups of schools under consideration. This in- 
formation is tabulated in Tables XI to XVII inclusive and is shown 
graphically in Figure 7. At the head of the table in each case is shown 
the information on the basis of which the table is made up. This is in 
the form of yes and no questions. 



55 



TABLE XI— BUILDING— (APPROVAL BLANK NO. 12). 







Yes. 


No. 


Blanks. 


, 




Number. 


Per cent. 


Number. 


Percent. 


Number. 


Percent. 


Total. 


A 


CityH. S 


12 
24 


4.87 
51.06 


220 

18 


89.45 
38.29 


14 

5 


5.69 
10.64 


246 


1-100 


Twp. H. S 

Total 


47 




36 

8 
16 


12.28 

11.76 
80.00 


238 

55 
3 


81.2 

80.88 
1,5.00 


19 

5 
1 


6.48 

7.35 
5.00 


293 


B 


City H. S 


68 


101-200 


Twp. H. S 

Total 


20 




24 

8 
9 


27.27 

61.53 
69.2 


58 

4 
1 


65.9 

30.76 
7.69 


6 

1 
3 


6.81 

7.69 
23.00 


88 


C 


CityH. S 


13 


201-300 


Twp. n. S 

Total 


13 




17 

11 
11 


65.38 

100.00 
100.00 


5 


19.2 


4 


15 3S 


26 


D 


City H. S 


11 


301-500 


Twp.H. S 

Total 










H 
















22 

14 
3 


100.00 

93.3 
100.00 










22 


E 


CityH. S 


1 


6.66 






15 


501-Over 


Twp.H.S 

Total 






3 
















17 
116 


94.4 
25 95 


1 

302 


5. .55 
67.56 






18 




Grand total 


29 


6.48 


447 



TABLE XII— LIBRARY— (APPROVAL BLANK NO. 27). 







Yes. 


No. 


Blanks. 






Number. 


Percent. 


Number. 


Per cent. 


Number. 


Percent. 


Total. 


A 


CityH. S 


233 
44 


94.7 
93.61 


3 

1 


1.2 
2.12 


10 
2 


4.00 
4.25 


246 


1-100 


Twp.H.S 

Total 


47 




277 

65 
19 


94.5 

95.58 
95.00 


4 


1.36 


12 

3 
1 


4.09 

4.41 
5.00 


293 


B 


City H. S. . 


68 


101-200 


Twp.H. S 

Total 






20 












84 

- 13 
11 


95.45 

100.00 
84.6 






4 


4.54 


88 


C 


City H. S 






13 


201-300 


Twp.H.S 

Total 






2 


15.38 


13 












24 

10 
11 


92.3 

90.9 
100. 00 






2 
1 


7.69 
9 09 


26 


D 


City H. S 






11 


301-500 


Twp.H.S 

Total 






11 
















21 

15 
3 


95.45 

100.00 
100.00 


1 


1 


4.5 


22 


E 


City H. S 






15 


501-Over 


Twp. H. S 

Total 











3 
















18 
424 


100.00 
94.85 










18 




Grand total 


< 


.89 


19 


4.28 


447 



56 



TABLE Xril-LABORATORY EQUIPMENT— (APPROVAL BLANK NO. 29). 



Equipped 

for 

teachers only. 



Number. Percent. 



Pupils also. 



Number. Percent. 



Blank. 



Number. Per cent 



Total 
schools. 



A 


City H. S 


42 

4 


17.07 
8.50 


185 
40 


75.20 
85.10 


19 
3 


7.70 
6.30 


246 


1-100 


Twp. H. S 

Total 

City H.S 


47 


B 


415 


15.69 


225 

61 
19 


76.79 

89.70 
95.00 


22 

7 

1 


7.50 

10.29 
5.00 


293 
68 


101-200 


TwpH.S . . 






20 




Total 














80 

12 
10 


90.90 

92.30 
83.30 


8 

1 

2 


9.09 

7.69 
16.66 


88 


c 


City H. S 






13 


201-300 


Twp.H. S 






12 




Total 














22 

10 

11 


88.00 

90.90 
100.00 


3 

1 


12.00 
9.09 


25 


D 


City H. S 






11 


301-500 


Twp. H. S . 






11 




Total 



















21 

15 
3 


95.45 

100.00 
100.00 


1 


4.50 


22 


E 


City H. S 






15 


501-Over 


Twp. H. S . 










3 




Total 


















18 
366 


100.00 
82.06 






18 




Grand total 


46 


10.30 


34 


7.60 


446 



TABLE XIV— MANUAL TRAINING ROOMS— (APPROVAL BLANK NO. 31). 







Yes. 


No. 


Blanks. 






Number. 


Percent. 


Number. 


Percent. 


Number. 


Per cent. 


Total. 


A 


CityH S 


63 
21 


23.6 
44.68 


150 
22 


60 97 
46.8 


33 
4 


13.41 

8.51 


246 


1-100 


Twp. H. S 

Total . . 


47 




34 

32 
12 


28.66 

47.05 
60.00 


172 

30 
6 


58.7 

44.11 
30.00 


37 

6 
2 


12.62 

8.82 
10.00 


293 


B 

101-200 


CitvH. S 

Twp. H. S 

Total 


68 
20 




44 

S 
9 


50.00 


.■?fi 


49.9 

1.5. 3S 
15.38 


8 

3 
2 


9.09 

23.07 
15.38 


88 


c 


CityH. S 


61. 53 2 
69. 23 2 


13 


201-300 


Twp. H. S 

Total 


13 




17 

11 
11 

22 

14 
3 


65. 38 4 


1.5. 33 


5 


19.23 


26 


D 


CityH. S 


100. 00 
100. 00 




11 


301-500 


Twp. H.S 

Total 










11 
















100. 00 

93. 33 
100. 00 










22 


E 


CityH. S 




1 


6.66 






15 


501-Over 


Twp. H.S 

Total 






3 

















17 

184 


94.44 
41.16 


1 
213 


5.55 
47.65 






18 




Grand total 


50 


11.18 


447 



57 



TABLE XV— DOMESTIC SCIENCE ROOMS— (APPROVAL BLANK NO. 32). 







Y 


es. 


N . 


Blanks. 






Number. 


Percent. 


Number. 


Percent. 


Number. 


Percent. 


Total. 


A 

1-100 


City H.S 

Twp. H. S 

Total 


34 
20 


13.82 
42.55 


184 
19 


74.79 
40.42 


28 
8 


11.38 
17.02 


246 
47 




54 

24 
12 


18.43 

35. 29 
60.00 


203 

34 

7 


69.28 

50.00 
35.00 


36 

10 
1 


12.28 

14.70 
5.00 


293 


B 


City H. S 


68 


101-200 


Twp. H. S 

Total 

City H. S 


20 


C 


36 
8 
9 


40.9 

61.53 
69.23 


41 

4 
2 


46.59 

30.76 
15. 38 


11 

1 
2 


12.5 

7.96 
15.38 


88 
13 


201-300 


Twp. H. S 

Total 

City H.S 

Twp. H.S 

Total 

City H. S 


13 


D 

301 500 


17 

9 
10 


•65.38 

81.81 
90.9 


6 

1 

1 


23.07 

9.09 
9.09 


3 
1 


11.53 
9.09 


26 

11 
11 










E 


19 

15 
2 


86.36 

100. 00 
66.66 


2 


9.09 


1 


4.54 


22 
15 


501 Over 


Twp. H.S 

Total 

Grand total 


1 


33.33 






3 












17 
143 


94.44 
31.99 


1 
253 


5.55 
56.59 






18 




51 


11.41 


447 



TABLE XVI— GYMNASIUM— (APPROVAL BLANK NO. 34). 





- 


Yes. 


No. 


Blanks. 


Total. 




Number. 


Percent. 


Number. 


Percent. 


Number. 


Percent. 


A 
1-100 


City H.S 

Twp. H.S 

Total 


31 
17 


12.6 
36.17 


194 
26 


78.86 
55.31 


21 

4 


8.53 
8.51 


246 
47 




48 

18 
12 


16.38 

26. 47 
60 00 


220 
45 

7 


75.08 

66. \1 
35 00 


25 

5 

1 


8.53 

7.35 
5.00 


293 


B 


City H. S 


68 


101-200 


Twp. H.S 

Total 

City H.S 

Twp. H. S 

Total 

City H.S 

Twp. H.S 

Total 


20 


C 

201-300 


30 

7 
6 


34. 09 

53.84 
46 15 


52 

. 5 
5 


59.09 

3S.46 
38.46 


6 

1 
2 


6.81 

7.69 
15.38 


88 

13 
13 


D 
301-500 


13 
5 


50. 00 

45.45 
63.63 


10 

5 
3 


8.46 

45. 45 
27.27 


3 

1 

I 


11 53 

O.09 
9.09 


26 

11 
11 




12 

11 

2 


54. 54 
73. 33 

m. 66 


8 

4 

1 


36.36 

26.65 
33.3 


2 


9.09 


92 


E 


City H.S 

Twp. H.S 

Total... 

Grand total 


15 


501-Over 




3 












13 
116 


72.22 
2.5. 95 


5 
295 


27.77 
65. 99 






18 




36 


8.05 


447 



58 



TABLE XVII— ATHLETIC FIELD— (APPROVAL BLANK NO. 35). 







Yes. 


No. 


Blanks. 






Number. 


Percent. 


Number. 


Percent. 


Number. 


Percent. 


Total. 


A 


City H. S 


94 
29 


38.31 
61.70 


101 
15 


41.06 
31.91 


51 
3 


20.73 
6.38 


246 


1-100 


Twp. H. S 

Total 


47 




123 

23 
14 


■ 47.97 

33.82 
70.00 


116 

33 
3 


39.59 

48.52 
15.00 


54 

12 
3 


18.43 

17.64 
15.00 


293 


B 


City H. S 


68 


101-200 


Twp. H.S 

Total 


20 




37 

3 

4 


42.04 

23.07 
30.76 


36 

8 
5 


40.9 

61.53 
38.46 


15 

2 

4 


17.04 

15.38 
30.76 


88 


c 


City H. S 


13 


201-300 


Twp. H.S 

Total 


13 




7 

4 
6 


26.92 

36.36 
54.54 


13 

5 
3 


50.00 

45.45 
27.27 


6 

2 
2 


23.07 

18.18 
18.18 


26 


D 


City H. S 


11 


301-500 


Twp. H.S 

Total 


11 




10 

4 
2 


^ 45. 45 

26.66 
66.66 


8 

11 

1 


36.36 

73.33 
33.33 


4 


18.18 


22 


E 


City H S 


15 


501 Over 


Twp. H. S 

Total 






3 












6 
183 


33.33 
40.93 


12 
185 


66.66 
4L38 






18 




Grand total 


79 


17.67 


447 



For example. Table XI shows the percentage of schools in the various 
groups which possess a building, the percentage who do not possess a 
building, and the percentage which is blank or, in other words, those 
who make no report. In this table there are 25.9 per cent of the schools 
which have a building, 67.55 per cent which have no building, and 6.5 
per cent are reported as blank; in other words, they make no report. 
Since this information comes from 447 schools it is very complete. The 
same general situation will be found in the other tables. For instance, in 
reporting on the manual training situation, 11.2 per cent of the schools 
failed to report, 41.16 per cent report that they have manual training 
rooms, 47.6 per cent report that they do not have any. The situation 
with reference to any particular group of schools can readily be found 
by scrutinizing the table. For example, in Table XI it is noted in Class 
A that 89.45 per cent of the city high schools do not have a building, 
and that 38.29 per cent of the township high schools do not have a build- 
ing. Passing clown the table, in Class C 30.76 per cent of the city high 
schools of this group do not have a building, 7.69 per cent of the town- 
ship high schools do not have a building. 

Since the facts in all of these tables are shown in graphic form in 
Figure 7 we may refer to that in order to get a general idea of the vari- 
ous high schools of the various groups so far as the characteristics of 
the plant are concerned. At the left hand side of the graph in the square 
provided for it is shown the number of the question on which the table 
is made up and on which the graph is constructed. The second column 
shows the size of the school, the third column shows the percentage of 
schools having the feature under consideration. For example, in that 
part of the graph appertaining to the building, in Group A 4.87 per 



59 

cent of the city liigh schools have a buikling and 51.6 per cent of the 
township high schools have a building. The hollow bar, as heretofore, in 
each case represents the city high schools, the solid bar represents the 
township high schools. 

It will be noted that in the smaller Classes A, B and C the township 
high schools are much better provided for in the matter of buildings than 
the city high schools. In that part of the graph referring to the library 
we have a remarkable variation from the trend heretofore shown in 
the comparisons of the equipment of the township high schools. In 
Classes A, B and C the township high schools are not as well .provided 
for in the matter of library as the city high schools. In Class E they 
are eq^ially well provided for. In Class D there are more of the toAvn- 
ship high schools which have libraries than city high schools. 

As to the question whether or not the laboratories provided for these 
various buildings are equipped for pupils, it is seen that in Class E the 
two groups of high schools are equally well provided for. In Class C 
the township high schools are not so well provided as the city high school. 
In all other classes the township high schools are better provided for 
than the city high schools. 

As to the number of manual training rooms (Question 31), in Class 
C the city high schools and the township high schools are equally well 
provided. In every other class the township high schools surpass the 
city high schools. 

In the matter of provision for domestic science rooms, in Class E 
the city high schools are better provided. In every other class the town- 
ship high schools are very much better provided for. 

In the matter of gymnasium, in Classes C and E the city high 
schools are better provided for; in every other class the township high 
school are better provided for. In the matter of an athletic field the 
township high schools are better provided for in every class than the 
city high schools. The remarkable situation shown in this graph is 
the fact that the smaller classes A and B are better provided even than 
the upper classes. This is very likely due to the fact that in making out 
the report on the Approval Blank the smaller schools report themselves 
as possessing athletic fields when they probably rent them or lease them. 
It is another evidence of the tendency on the part of schools of this grade 
to magnify whatever possessions they might have with a view to securing 
recognition for their schools. 

One of the most important features in the equipment of a school, 
which is often neglected, is the library. In recent years large sums of 
money have been expended for laboratory equipment, domestic science, 
manual training, etc., all of which expenditures are amply justified. 
However, the center of every high school should be its library, and ex- 
penditures for equipment are woefully out of balance when the appropria- 
tions for this item of equipment are low and others are adequately 
provided for. It adds much more to the efficiency of every department 
in the building, and should be the center of academic activity. As was 
shown in Figure 7, the township high schools are inferior to the city 
high schools in this particular, although superior in every other. The 
information regarding the libraries in the State of Illinois is reported in 



60 



Question 23 of Form 2. This information is assembled and displayed 
in Table XVIII. 

This table is made up in exactly the same manner as the preceding 
tables. Here again the quartile deviation is greater in the case of the 
township high schools than in the city high schools in every case except 



Question 


School 


Cent 






4 

S 








1 

loo 


4.87 
Sl.Ob 










1 O 1 

to 

zoo 


)!.7fe 

go.oo 










20I 

to 

300 


bt.os 

t9.02 










^fo' 

SCO 


too 
\oo 










501 


lOO. 


1 








> 

Of 

0? 
M 








1 
to 
lOO 




1 1 1 








-t-o 
zoo 












2Cn 


lOO. 


■■■ 








30I 

-t/O 

soo 


100. 










OV«.r 


too 

lOO 










in 

(^ ^ 








1 
to 

too 


7^2. 
85.) 










lOI 
to 

ZOO 


89.7 
<?5.0 










201 


92.3 
83.3 


^^IHH 








500 


90.9 
lOO 








. 


SOI 

And 
over 


lOO 
lOO 











Figure 7a 

Figure 7. — Characteristics of the Plant. In the vertical oblong spaces to the 
left are shown the number for the question in Form 2 from which the information 
is derived and the particular feature of the plant referred to each respective sec- 
tion of the graph. In each section of the graph the schools are classified in the 
second vertical column according to their enrollment. In the third vertical 
column the percentage of the schools in each group possessing the feature desig- 
nated in the first vertical column is shown. This percentage is represented at the 
right by horizontal bars, the hollow bars representing city high schools, the solid 
bars the township high schools. 

in Class A, where it is smaller. The facts brought out in Table XVIII 
are shown graphically in Figure 8. 

The graph here referred to is constructed in exactly the same man- 
ner as those heretofore. An equalized scale appears at the left hand and 



61 



a scale of medians at the right. It is particularly to be noted here that 
in library equipment the township high schools are inferior to the city 
high schools in Class A, B and C ; they are superior in Classes D and E. 




Zl 



s50i 

dnct 
over 



too 

hb.bb 



lOI 
-to 
200 



2b.47 




SOI 
ovar 



73.-53 






38.21 
61.70 



101 

to 

2.00 



53.8a 

10.0 



201 
■300 



25.07 
30.7fo 



301 



3fe.3t. 
54.54 



2(3. fat. 



Figure 7b 



The smaller township high schools have not realized the necessity for a 
library. 

In Table XIX we have a display of the information as to the num- 
ber of students for whom the laboratories in the high school are equipped. 



62 





IS 




Tt<CO 




5S 




05CO 
CD -.O 




3: ^^ 






as 


oo oo -no 050 050 
SS m2_ o_§ c3^w S_o_ 




ocD oo OCU-5 oi^ —r^ 
c^cq ■*•* 05>o °°'-'^ '-i^ 




ooo o »i5 00 »o oo >oo 

CSO Ot^ IN 0> rtO t^O 

■* ec 00 1^ ^,'-2. ^"^ '^'^ 

i-t-h' w"or co^ 




■^t^ 0:0 Ort -rf 00 ooos 
CO CD VOOi -rt^ rH •<*< VO ■<*<« 

^co 05t^ CO c^ oi CO coo 

rH^rn" i-Tm" CO-* 


3 






-* O Oi 


00 00O5 

■^ co^c<_ 

00 ^00 


CO ^t~ 

oT cooT 

rfi lO ^ 


^ COCM »0 
CO §00 CO 

CD S 00 CO 
CM CO 


000 'H ISA 


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^ ^ • 


*"* 






^^ 


CM 1--5 ~J 


r^ ooco -1 


000'f'$-lOS'8$ 
























•; "" 


CM — 1 -1 CM 


009'S$-t00'8$ 






















'"' 


^ CO ; 


CO CO— 1 "J- 


ooo'ss-ios'cf 


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Tj« l-H . 


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00S'2$-I00'S$ 


'"' ; 


rt rt rt 


c^ cq ^ 


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CM t-Tf w 


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00Z$-T09$ 


>oo< 


t^ »o ■ 


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CM 






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009$-I09t 


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^ CO t^ 
C^ CJ 


009$-I0H 


i3--° 


rf OC CO 


^ - 1 


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rti lO 


00W-I0£« 


S"^ 


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"^ 












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CO-H rX 


00£«-I02J 


_;^ ig oo^ |a. 


^ l-H 




1 






1 


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^-H CO 


OOJ;$-IOT« 


ooo 1 00 CO . 1 CO 


: 1 ; 




1 






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CO 00 ^ 

-* in 


00I$-IS 


CO o< 1 jg '^ ; 1 "^ 


: 1 : 




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-* CM CD 


•siooiios JO jaqmnN 


^— IIIO COOOIr-H (NO 
Tj.r)tOO COrHOO -H— 1 


IN t-IIN 

IN -H '^ 


?? S" 2 |S § 






5^ 












'■X 








c 


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s 

t 




"c 


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o o 




< 


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p 


5 2 

o 




i: 


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c 


^2 




li 









63 






'j^ t^ CO cc ; 



00 CO cs 



■ -H I CO Oi 



O «5 




cs w 


CO XI 


§ 


t^oo 

(NrH 



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00 »o r^ 



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■W 



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M.~w.-M.-=w.--;a!.-=a 



OH 



OH 






OH 
g 



OH 



fij, 



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WO 



64 



The distribution of the school groups at the left of the table is shown in 
the regular manner. At the top of the various columns the number of 
pupils for whom the laboratories are equipped are grouped, 1 to 5, 6 to 
10, 11 to 15, and so forth. 

At the right of table is shown a column of blanks, indicating the 
number of schools who do not report on this item, and the column at the 
extreme right is the number of schools involved. There are 446 schools 
from which the information was tabulated. Of these schools 17 per cent 
do not report on the item. In each of the other columns the number and 
percentage of students in each group is shown. In this table it appears 
very readily that there is no important distinction between the township 
high schools and the city high schools. The number of students for 



Figure 8. — Volumes in tlie Library. Tlie higli 
schools are classified at tlie bottom according to the 
number enrolled. The upright bars represent 
the range in number of volumes from the first 
quarter to the third quarter; the hollow bars rep- 
resent the city high schools and the solid bars the 
township high schools. M represents the median 
number of volumes in each case. An equalized 
scale of the number of volumes is shown at the 
left and a scale of the medians at the right. 



n 



500 

M 



11 



1 



J028 
"lOlS 
_8oo 
'77S 

-■4:28 
30a 



loi 2ol 3or Sol 

TO To To /^ND 

iOO 300 500 OVER 



which laboratories are equipped is worthy of some attention, however. 
In Class E laboratories are typically equipped for from 31 to 25 students. 
In Class D the mode in the group is from 16 to 30 for the township 
high schools and from 31 to 35 for the city high schools. In Class C 
the mode is from 31 to 25 although there are 5 in the group from 36 to 
30, In Class B the mode is from 16 to 30. In Class A two sizes pre- 
dominate, 11 to 15 and 16 to 30. 

In Table XX is compiled the information supplied under Question 
33 of the Approval Blank. This is in reference to the number of sittings 
in the General Assembly. 



65 



TABLE XX— NUMBER OF SITTINGS IN GENERAL ASSEMBLY— (APPROVAL BLANK 

NO. 23>. 







i 

5 


o 
o 

I— ( 


8 

o 


g 

i 


o 
1 

i 


1 
o 


o 

s 

o 


s 

o 
1 


O 


1 
1 

i 


A 


CityH. S 


54 
6 


154 
26 


24 
11 


7 
1 


5 
1 


1 
2 


1 






246 


1-100 


Twp. H. S 






47 




Total 












60 

7 
3 


180 

10 

4 


35 

46 
11 


8 

4 
1 


6 


3 


1 






293 


B 


CityH. S 


1 




68 


101-200 


Twp.H.S 


1 








20 




Total 














10 


14 

1 


57 

6 
3 


5 

5 
5 


1 

1 






1 




88 


C 


CityH. S 








13 


201-300 


Twp. H. S 


1 


2 




1 




12 




Total 








1 


1 


9 
1 


10 

5 
4 


1 

2 
5 


2 

2 
1 




1 

1 
1 




25 


D 


CityH.S 




11 


301-500 


Twp. H. S 








11 




Total 


















1 


9 
1 


7 
2 


3 
1 


5 


2 

2 
1 




22 


E 


CityH.S 


2 
1 




2 
1 


15 


601-Over 


Twp. H. S 






3 




Total : 


















3 

63 
11 






1 

22 
11 


2 

10 

7 


1 

4 
5 


5 
6 


3 

4 
3 


3 

2 
1 


18 




Total City H. S 


165 
30 


77 
25 


353 




Total Twp.H.S 

Grand total 


93 




74 


195 


102 


33 


17 


9 


6 


7 


3 


446 









From an examination of this table it will be noted that it is con- 
structed on the plan of the preceding ones. It will be readily seen that 
the various high schools typically provide the number of sittings to ac- 
commodate their enrollment. For example, both township high schools 
and city high schools having an enrollment of 101 to 200 provide assem- 
bly room sittings for that number of students. For example, in Class B 
there are 57 schools that have assembly sittings to the number of 101 
to 200. 

The same information is provided in Table XXI but derived from 
the other blank, that is Form 2. 

This information is organized in the manner habitually followed in 
this study. It is carried out in more detail than in the previous table. 
The medians, quartiles and quartile deviations are shown. The same 
facts as noted in the preceding table are shown here, and this topic needs 
no further discussion. 

In planning the construction of a new high school building one of 
the first problems that confronts the architect is the unit of construction, 
which must necessarily be based upon the number of recitation rooms, 
since recitation rooms are more numerous than rooms of any other type. 
The school authorities who are responsible for inaugurating a building 
campaign must necessarily have in their minds just how elaborately they 
are going to equip their plant with laboratories, manual training rooms, 
domestic science rooms, and so forth. These special rooms have had 
— 5 I H S 



66 




G7 



some considerations in tlie preceding tables and in the preceding dis- 
cussion. Schools from 200 to 500 typically have 2 domestic science 
rooms, 2 manual training rooms, two or more laboratories, a gymnasium 
and athletic field, and so forth. Just how many of these special rooms 
will be provided in the building depends upon the amount of money 
available and the piDlicy of the school authorities. However, the effi- 
ciency of the building will depend largely upon adequate provision for 
recitation rooms. The number of recitation rooms is the first considera- 
tion in the construction of a high school. In Table XXII is shown a set 
of facts as to the number of recitation rooms which are in use in the high 
schools of the various sizes indicated. 



TABLE XXII— NUMBER OF RECITATION RO0MS-(N0RTH CENTRAL BLANK). 




This information is compiled from a preliminary transcript pre- 
pared by Mr. Counts in preparation fox his study "A Study of Colleges 
and High Schools in the North Central Association," published by the 
United States Bureau of Education, referred to in the second chapter of 
this study. In this table the various groups of high schools are arranged 
at the top ; the ISTorth Central Association, the Illinois high schools, and 
the township high schools are shown in the left hand column. The table 
shows the median number of recitation rooms in the high schools of the 
various groups, in the column marked "medians." The middle 50 per 
cent of each group is shown also under the heading marked "Quartile 
Eange." Por example, on reading the table from left to right beginning 
with the line opposite "North Central," we find that in the North Central 
schools in Class A the median is 4 recitation rooms, and the middle 50 
per cent of the schools of the North Central xlssociation have from 3 to 6 
recitation rooms, in this group. In the North Central Association in 
Class B the median number of recitation rooms in schools of this group 
is 5. The middle 50 per cent of the quartile range as it is called here, 
have from 5 to 6 recitation rooms, and so on. The situation may be 
noted for the city high schools in Illinois and fox the township high 
schools in the same manner. It will be noted that in Class D the median 
number of recitation rooms in the North Central Association is 12, and 
the middle 50 per cent is from 10 to 15. Illinois high schools in this 
group have a median of 14 class rooms; the middle 50 per cent is from 
12 to 16. Township high schools have a median of 14; the middle 50 
per cent have from 11 to 16 recitation rooms. 



C8 

Here again in preparing to erect a high school plant the school 
authorities responsible for the matter could safely determine upon a cer- 
tain number of recitation rooms in the light of this table, in addition to 
the special rooms for domestic science, manual training, etc., which they 
may decide to incorporate. For example, if they had an enrollment of 
200 but expected their population and their proportionate high school 
enrollment to increase, they might plan to construct a building to accom- 
modate from 300 to 500 students. In that case they would determine 
that in addition to the various special rooms, manual training, domestic 
science, etc., which they might construct, a moderate estimate of the 
recitation rooms needed would be 14. More progressive people would 
prefer to make the limit set by the median and the third quartile, 14 to 
16. The provision would not be extraordinary if 16 recitation rooms 
were provided. 

In Table XXIII is displayed the information coming from Question 
15 of the Approval Blank. 

This has to do with the number of rooms used for the high school 
where there is no separate building. It also gives the information as to 
the number of schools which have no building. There are 446 high 
schools involved. Of these schools 3.13 per cent make no report on this 
item, 68.83 per cent report that they have no high school building, 28.02 
per cent represent that they have buildings. This large percentage is 
due to the fact that so large a proportion of the high schools in the 
State are small. There are 293 schools in the State having an enroll- 
ment of 1 to 100 pupils ; 246 of these are city high schools, 47 are town- 
ship high schools. Of the city high schools in Class A 87.8 per cent have 
no separate building; 46.8 per cent of the township high schools have 
no separate building. In both classes A and B there is a large percentage 
which have no separate building. In the middle portion of the table are 
shown the number of schools in each group having 1, 2, 3, 4, 5 rooms, 
and so on. In each case also the percentage of schools having a given 
number of rooms is indicated. This percentage is based upon the num- 
ber of schools in that group. For example, in the city schools in Class 
A there are 7 high schools which have 6 rooms each. This is 3.24 per 
cent of the total number in this group, which is 246. At the right of the 
table are shown the medians, the quartiles and the quartile deviations. 
For example, in Class A the median number of rooms which city high 
schools with no separate building to occupy is 3 ; the middle 50 per cent 
of these schools occupy from 1 to 4 rooms. In the case of township high 
schools in Class A the median number of rooms occupied by township 
high schools which have no building is 4 ; the middle 50 per cent of this 
group of schools occupy from 3 to 5 rooms. Similarly in Class B in the 
case of city high schools the median number of rooms occupied by city 
schools which have no separate building is 7. The number of rooms 
occupied by the middle 50 per cent of city high schools of this group is 
from 5 to 7. In the township high schools in this group the median 
number of rooms occupied by high schools having no separate building is 
6 ; the middle 50 per cent is from 5 to 6. 

As has been previously stated, most of the preceding tables must 
be interpreted in the light of this table. That is, when we are consid- 



69 



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70 

ering the maintenance of a plant;, the operation of a plant or any other 
financial consideration Avhatever that has to do with the plant, it is nec- 
essary to note that in the smaller groups the high school plant is operated 
in connection with the elementary school plant or, in other words, is a 
part of the elementary school plant. Very often information in these 
smaller groups which is furnished under various headings is incomplete 
and somewhat inaccurate because charges which should be made against 
the high school very likely are entered against the elementary school, and 
vice versa. Only in the case of high schools which have a separate build- 
ing can we be sure of securing information pertaining to the high school 
alone and not complicated with the finances of the elementary school 
below. 

In treating of the facts shown in this chapter thus far certain prin- 
ciples stand out very definitely. In every category it is to be expected 
that the amount of money invested or expended varies in direct propor- 
tion to the increase in enrollment. The township high schools in every 
case have more money invested in sites and buildings than the city high 
schools. It costs more to maintain and operate the plant in the township 
high schools than in the city high schools. The township high schools 
are more completely equipped in every particular than the city high 
schools except one, namely, the library. 

This larger expenditure both on account of investment and current 
expense on that part of the township high schools is the direct outgrowth 
of two features in the township high school organization which char- 
acterizes it as a unit of school administration. In the first place, the 
township high school is organized to cover a wider range of territory than 
the ordinary high school district, thus providing a wider basis of taxation 
and allowing a larger accumulation of funds. The greater resources thus 
provided enable the school authorities to invest larger sums of money 
in the plant and to give more adequate financial support to the main- 
tenance and operation of the building and to provide greater and more 
varied equipment for the use of the school. The other factor which has 
a definite bearing upon this situation is that the board of education and 
the supervising officer (the principal) give specialized attention to this 
one unit in the school system, whereas the conventional school district 
with a system of schools extending from the elementary grades through 
the high school has a board of education and a superintendent whose at- 
tention is diffused over the entire system. This is a consideration which 
will come up for more particular attention at a later point in this study. 



71 



CHAPTER IV. 



FINANCE. 



Expenditures for tlie capital account as clisciissed in the preceding 
chapter are the first great problem in financing a high school or any other 
important enterprise of a permanent nature. They often come in a 
large volume at one time. On the other hand, current expenses are a 
constant problem. 

Boards of education often fail to realize the seriousness or extent 
of this problem. The finances of school districts large and small, both 
elementar}^ and secondary, are often managed in a liit or miss fashion 
without any preconceived plan or policy. There is, however, a growing 
feeling among educators and among school experts who give their atten- 
tion 'to the fiscal side of education that the business interests of school 
systems should have the same conscientious attention that commercial 
organizations demand. In order to accomplish this, it is necessary to 
adopt some of the plans in common use in commercial life. This cannot 
be accomplished practically without the adoption of proper machinery 
for studying costs. This means in addition to the adoption of an ade- 
quate plan the organization of a much larger clerical force than is now 
the custom in school systems. A commercial institution having the cor- 
responding size and importance of a school system under consideration 
would have a much larger clerical force than is now the practice. 

On the financial side one of the most urgent needs for the school 
systems is the adoption of an annual budget. This is more necessary in 
the school enterprise than in a business enterprise because there are so 
many persons and departments involved in the demands for money, and 
these demands are not as thoroughly integrated as is often the case in 
a commercial establishment. 

A school system varies from a commercial enterprise in the char- 
acter and methods of its income. It does not produce a product for sale 
and because of that fact people are often blinded to the fact that there is 
a product, and that the cost of that product must be analyzed. Of course, 
the first topic in cost analysis is a consideration of the capital account 
which was discussed in the preceding chapter. In a commercial estab- 
lishment the capital investment in the plant is carefully accounted for 
and the depreciation of the plant and equipment are charged against the 
income. It is customary to allow 10 per cent depreciation charge for the 
plant itself and 20 per cent depreciation charge for equipment. The 
reason for this is that replacements and repairs are necessary. They are 
a legitimate charge against income before dividends are declared. Hence 
it is impossible to figure profits or to figure costs unless there is an 
adequate depreciation charge. In this particular only should the finances 



72 

of a school be treated differently from that of a business corporation. 
The reason for this is that the product of the school system is not ex- 
changed for a monetary return with the expectation of profit. This is 
best managed by including in the budget each year an appropriation for 
maintenance which was treated in the last chapter. 

An analysis of current expenses involves other complicated consider- 
ations. Under what heads is it proper that we should analyze current 
cost? It seems that early in the consideration of this topic an analysis 
based upon rather large subdivisions will be most valuable. These sub- 
divisions may later be refined and the investigation become more minute. 
In this study the divisions of the topic are those shown in Form 2, 
namely, General Control, Instruction, Operating School Plant, Mainte- 
nance of Plant, Auxiliary Agencies. These added together constitute 
the total of current expenses. In this study the items coming under the 
head of General Control and Auxiliary Agencies have not been tabulated 
for the reason that the practice in reporting seems to have been so varied 
that the tabulation would not have been highly valuable. However, these 
items together with the other items are included in the tabulation of the 
total current costs so that the tabulation on the matter of total current 
expenses does represent accurately the situation with reference to total 
current expenses. The operation of school plant and maintenance of the 
plant were discussed in the preceding chapter in order to give complete- 
ness to that chapter. These topics, however, properly belong in this 
chapter also, and to have a complete understanding of this chapter the 
reader should refer to the preceding chapter and examine the tables and 
graphs covering them and the accompanying ones. They are also indi- 
cated in this chapter in a consideration of the total current expenses. 
There remain for detailed discussion in this topic the matter of instruc- 
tion, per capita cost, assessed valuation of the districts, and rate of taxa- 
tion. 

Table XXIV exhibits the facts reported under Item 13 of Form 2, 
namely, amount of annual salary earned by teachers. 

This is an important consideration, as it shows the amount unex- 
pended annually for teaching stripped of all other financial considera- 
tions. This table is constructed in the same manner as heretofore. City 
high schools and township high schools are in the column at the left, 
and the number of schools in each group are shown as they are arranged 
according to the various amounts of money that they expend annually 
for teaching. For example, beginning the table at the top and reading 
to the right, there are 27 city high schools of Class A expending from 
$1 to $1,''000 for instruction, 91 expending from $1,001 to $2,000, 92 
expending from $2,001 to $3,000. Similarly, there are 9 township high 
schools of Class A expending from $1,000 to $2,000, and so forth. Note 
that there are altogether 97 township high schools and 358 city high 
schools involved in- this calculation, making a sum total of 455 high 
schools which are studied herein. It will be noted that there are 5 
schools in the State which spend over $50,000 annually for instruction. 
The table also shows the average, the median, the first quartile, the third 
quartile and the quartile deviation. The median shows what is probably 
the most representative practice in each of the groups of schools consid- 



73 





5.2 a 




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0> 00 




t^ o 


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lOOC 

oo^ 












$ 2,625 
3,665 

5,460 
8,645 

9,980 
11,865 

15,810 
27,150 

40,922 
91,068 




Si 


$ 1,480 
2,317 

3,633 

4,885 

7,942 
8,447 

12,310 
15,025 

23,734 
61,275 




H 
c3 


$ 2,105 
2,816 

4,645 
6,945 

8,220 
9,906 

13,828 
18.790 

26,926 
78,350 




be 

> 


$ 2,132.79 
2,948.07 

4,661.25 
6,919.64 

8,663.45 
10,208.23 

14,261.82 
20,605.46 

33,400 19 

76,898 




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$670,929 

321,626 
150,232 


$471,858 

95,298 
132,707 


$228,005 

156,880 
267,871 


$424,751 

534,403 
230,693 




$765,096 

$1,643,525 
917,114 


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Figure 9 — Annual Expenditure for 
Teaching. The high schools are classified at 
the bottom according to the number en- 
rolled. The upright bars represent the total 
annual expenditure for teaching from the 
first quartile to the third quartile. The hol- 
low bars represent the city high scliools and 
the solid bars the township high schools. 
M represents the median annual expendi- 
ture in each case. An equalized scale of 
annual expenditure is shown at the left and 
a scale of the medians at the right. 



75 

ered. A school which falls within the middle 50 per cent is probably 
not far out of the way in its expenditure for instruction as compared with 
the other institutions in the State. This middle 50 per cent, of course, 
is shown by the limits of the first quartile and the third quartile. The 
facts set forth in Table XXIV are shown graphically in Figure 9, and 
Table XXIV should be studied in conjunction with Figure 9. 

Figure 9 shows at the left hand an equalized scale, and at the right 
a scale of medians. It will be noted in the township high schools in 
Class D that the median expenditure is $18,790 per year and that the 
expenditures of the middle 50 per cent of these schools are from $15,035 
to $27,150. Xow, it is not always creditable to an institution that it 
spends a smaller amoimt of money for au item than other institutions do. 
For example, for instruction it will be seen in a later chapter that prac- 
tically all of the schools spend too small an amount of money, but it is 
desirable for the formulation of a correct financial policy and for the 
completing of an annual budget that an institution know what other 
institutions of its class and size do in this respect. 

In looking over this table and the graph referred to it will be seen 
that the expenditures for instruction, as would be expected, increase 
directly as the size of the school increases. It will also be seen that the 
township high schools in every case expend more than the city high 
schools. It will also be noted that the deviation in the case of the town- 
ship high schools is greater than in the city high schools. This, of 
course, represents larger experimentation and greater difference of prac- 
tice in handling the same proposition on the part of the township high 
schools. 

In Table XXV is shown the information reported in 43-B of Form 2. 

This shows the expenditures of the various schools in the item of 
the salaries of teachers giving one-half or more time to their work. 
This table is of particular value in that it shows the amount of money ex- 
pended for instruction after part-time teachers, superintendents and 
supervisors who teach less than half time are eliminated. In other words 
it displays the amount of money expended for full time instruction. An 
examination of the table, however, shows the same relative situation re- 
garding the expenditures for instruction as Table XXIV. A school wish- 
ing to compare itself absolutely in the matter of instruction with others 
of its class can do so with the satisfaction that all unusual matters, such 
as part-time teaching, have been eliminated. 

On the other hand. Table XXVI is a display of the facts regarding 
the total cost of instruction reported in Item 43 of Form 2. In this is 
included all kinds of expenditures for instruction, supervisors and prin- 
cipals who teach less than half time, teachers and principals who teach 
half time or more, text books, stationery, supplies, interest on teachers' 
orders, tuition of transferred pupils paid by the district, in fact, all 
expenditures which may properly come under the head of instruction. 

This table is graphically represented by Figure 10. 

If we examine this table in the same way as we have preceding tables 
we will note that, for example, in the township high schools of Class D 
the median total cost of instruction is $22,844. The middle 50 per cent 
of schools of this group expend from $19,305 to $27,706. We note also 



76 



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Fig. 10. — Total annual cost of Instruction. 
The higli schools are classified at the bottom 
according to tlie number enrolled. The upright 
bars represent tlie range of the annual cost of 
instruction from the first quartile to the third 
quartile. The hollow bars represent the city 
high schools and the solid bars the township 
high schools. M represents the median total 
annual cost of instruction in eacli case. An 
equalized scale of annual cost is shown at the 
left and a scale of the medians at the right. 



79 

that here as before the township high schools expend larger sums of 
money for instruction than the city high schools and that the deviation 
in every case is larger in the township high schools than in the city 
high schools. 

Perhaps boards of education and school executives generally will be 
more interested in the tabulation of total costs than in the various items. 
This is shown in. Table XXVII and includes not only the items which 
are given in detail in this and in the preceding chapter but all other 
items which come under the head of current expenses. 

The facts shown in this table are represented graphically in Fig- 
ure 11. 

Looking at this table in exactly the same way as we have the pre- 
ceding ones we note, for example, in Class D that the median total cur- 
rent costs of township high schools in this group is $28,425. The middle 
50 per cent of tliese schools spend from $23,975 to $47,185. The devia- 
tion in the case of township high schools is greater than in the city 
schools in every case. 

As was indicated in the preliminary discussion in this chapter, there, 
have been formulated no general standards of costs of very wide accept- 
ance. Certain studies have been made on the basis of the cost per en- 
rollment; some have been made on the basis of the cost per hour of in- 
struction; and various other standards of costs have been evolved. Per- 
haps the standard which would show the best results and give infonna- 
tion of an objective character that could be followed by everybody would 
be the per dieni: cost. The actual numl)er of days' attendance is shown 
in this study in Table LXII. There has been no opportunity in the 
present investigation, however, to tabulate the cost on this basis. We 
have followed the more common custom, and have calculated the per 
capita cost on the basis of enrollment. This is found by dividing the 
total current expense in each individual school by the enrollment reported 
from that school. The figures thus secured are displaved in Table 
XXVIII. Table XXVIII is illustrated in Figure 12. 

We have in this table information from 97 township high schools 
and 355 city high schools, a total of 452 high schools. It will be noted 
in this connection that there are 13 city high schools of Class A in which 
the cost per capita is from $21 to $30 ; there are 41 in which the cost 
per capita is from $31 to $40. Xote particularly that although there 
are a few schools of Class A which have a very low per capita cost yet 
there are a number which have a very high per capita cost. There are 
more schools of Class A which have a per capita cost of over $100 than 
of any other class. Examining the medians of the city high schools, it 
will be noted that the per capita cost does not vary to any large extent. 
Class B costs less than Class A. Classes A, B and C are very close to- 
gether. Class E is the most expensive. In the case of the township 
high schools it will be noticed that the per capita cost in Class A is 
larger than in Class B and Class C. In Class D of the township high 
schools the per capita cost rises again, and is at its highest in the case 
of Class E. In both kinds of schools it is to be noted that Class E 
has the greatest per capita cost. This class of schools could practice 
economy most effectively and have the lowest per capita cost, but they 



80 



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81 



Fig-. 11. — Total current costs. The high 
schools are classified at the bottom according 
to the number enrolled. The upright bars rep- 
resent the range of total current costs from the 
first quartile to the third quartile. The hollow- 
bars represent the city high schools and the 
solid bars the township high schools. M repre- 
sents the median total current cost in each case. 
An equalized scale of total current costs is 
shown at the left and a scale of the median at 
the right. 



J 



r 



.I4.705 

. 11270. 
8.511 



T' ^' W' 3°^ ?^> 

— 6 I H S 



82 



TABLE XXVIII— PER CAPITA COST— (FORM 2, SUMMARY). 







o 
1 
























i 


_2 








1 


o 
1 

5 


o 

i 




1 


1 


««> 


1 

1 

00 


1 
1 
1 


> 
O 

1 

o 


a 

> 
< 


i 

■'•3 




V. 
2 


1.1 


A 


CityH.S 


252 13 


41 


70 


6531 


20 


8 


3 


1 1 1 
1 854. 16'.$50. 65$41.66 


$59. 46 


$ 8.90 


1-100 


Twp. H. S 


46 .. 


1 


4 


9 


4 11 


5 


3 


9 


80.47 


73.21 


57.65 


92.45 


17.40 




Total! 


29813 
68 2 


42 
20 


74 

26 
3 


74 
13 


35 31 


13 


6 


10 


45.37 
67.93 


44.23 
61.15 


36.30 
53.25 


51. 78 
76.70 




B 


City H. S ... 


6 


1 

4 


7.74 


101-200 


Twp.H.S 


22 


1 


6| 5 


1 




2 


12.73 




Total 


90 

11 
13 


3 


20 

1 
1 


29 

7 
2 


19 

3 

4 


11 


5 


1 




2 


46.66 
58.70 


43.85 
59.37 


42.13 

48.17 


55. 59 
65. 30 




c 


City H. S 


6.73 


201-300 


Twp. H. S 


5 






1 




8.57 




Total 


24 

9 
13 

22 

15 
3 




2 

1 

1 


9 

4 

1 

5 

7 


7 

3 
1 

4 

5 


5 

1 
4 

5 

3 






1 




49.31 
87.32 

52.77 
94.48 


48. 39 
71.80 

53.62 
89.30 


43. 64 
66.22 

46.26 
87.69 


55. 85 
110.68 

' 56. 29 
100.46 




D 


City H. S 


6.11 


301-500 


Twp.H.S 


- 


1 
1 




5 
5 


22.22 




Total 




E 


City H. S 


5.02 


501-Over 


Twp. H. S . . 




2 




1 


9.39 


























Total 


18 
355 


15 


63 


7 
114 


5 

89 


3 
41 


21 


2 

8 


3 


1 
1 














Total City H. S.... 






Total Twp. H. S.. 


97 


1 


21 


10 


20 


18 16 


9 


4 


17 














Grand total.... 


452 16; 


65 


124: 


109 


59 37 


17, 


7 


18 













no 


lOO 


1 


90 


1 


80 




■"n 


70 ■ 


■N 




60 I.M 1 






4-0 


^ M- 


1 




lJ 




L 

30 


-• 


'° !<=/ io, fo, ^o/ 



Fig. 12. — Per capita cost. 
The high schools are classified at 
the bottom according to the 
number enrolled. The upright 
bars represent the range of per 
capita cost from the first quar- 
tile to the third quartile. The 
hollow bars represent the city 
high schools and the solid bars 
the township high schools. M 
represents the median per capita 
cost in each case. An equalized 
scale of per capita cost is shown 
at the left. 



83 

also have the opportunity and they choose to take advantage of it to en- 
rich their courses of study, extend their electives and to increase their 
equipment. Class A has the next largest per capita cost. This is because 
of their meager enrollment and consequent small classes. This offsets 
the fact that their teachers have smaller salaries. Following Classes E 
and A, the remaining groups in the decreasing order of their per capita 
costs are D, B, and C. 

As a generalization upon these figures, it would seem that city high 
schools can probably most economically handle their students and yet 
provide them with a broad system of electives and furnish them with 
excellent equipment, in Classes C and D. It seems that the township 
high schools may do this best in the case of Class C. In short, Classes 
B, C and D seem to provide opportunity for an economical administration 
of high schools. The facilities which they provide will be shown in an- 
other chapter. 

In this table, as in the preceding ones, it is seen that the per capita 
cost in the township high schools is more than in the city high schools. 
Here again the deviation is larger in the township high schools than in 
the city high schools, in every group. An examination of any individual 
group may be undertaken in this table as in the preceding ones. For 
example, in the township high schools of Class D it is to be noted that 
the median per capita cost for schools for this group is $71.80. The 
per capita cost of the middle 50 per cent of schools in this group is from 
$66.23 to $110.68. A school within this range can be sure that it is 
well supported in its practice by the practice of schools of its own size 
and standing. 

Expenditure, however, is not the whole of the financial problem. 
School boards and school officials generally, are often in hard straits to 
secure the necessary income to conduct their schools properly. As was 
noted in a preceding chapter, probably the most important reason for this 
difficulty is the fact that the provisions of the school revenues were 
originally established by law to finance elementary schools which had a 
relatively simple organization. In the last quarter of a century elemen- 
tary schools have become very complex and much extensive, and in addi- 
tion to this has been added in scores of communities the burden of sup- 
porting a high school. High school education, necessarily because of the 
high cost of instruction and the expensive buildings and equipment de- 
manded, has greatly increased the burden placed upon the fiscal resources 
of the districts in question. Unfortunately this situation has not been 
frankly faced by legislatures, and in many communities educational in- 
terests languish for lack of funds. One of the great benefits of the 
toAvnship high school movement in the State of Illinois is the fact that it 
provides an adequate solution for this problem. In the case of city high 
schools there are no figures which show the proportion of the tax rate 
which is devoted to high school purposes, hence, even were the figures 
available, it would not be profitable to display a tabulation of the assessed 
valuation shown in the various city high school districts. This has some 
value, howcA^er, in the case of township high schools, and the information 
is given in Table XXIX. 



84 



TABLE XXIX— ASSESSED VALUATION OF TOWNSHIP HIGH SCHOOL DISTRICTS— 

(SPECIAL REPORT). 





A 
1-100 


B 

101-200 


C 

201-300 


D 

301-500 


E 
501-Over. 


Total. 


Number of schools 


40 


22 


11 


7 


4 


84 


Assessed valuation— 

0-$ 500,000... 

$ 500,001- 1,000,000... 

1,000,001- 1,500,000... 

1,500,001- 2,000,000... 

2 000 001 2 500 000 


7 
14 
17 

2 










|7 


4 
5 
7 
3 
1 








18 


1 

4 
2 
2 






23 


1 




14 




ts 


2'500'001 3 000,000 








3 


3 000 001 3 500 000 










3'500'001 4'000'000 




1 


1 






2 


4'000'001 4,500,000 




i 

2 
3 




1 


4*500 001- 5 000 000 










2 


s'ooo'ooi- Over 




1 


1 


4 


9 








Total 


40 

$ 181,872 
1,934,374 

696, 240 J 
2,574.907 

938,333.25 


22 

$ 62,308 

1,657,236 

1,125,084 

2,015,534i 

890, 450 J 


11 

$ 635,076 

2,038,657 

1,588,426 

2,732,806 

572,190 


7 

$ 856,760 
4,909,936 
4,295,346 
7,088,148 
2,792,802 


4 

$10,423,175 

6, 035, 632 J 

7, 802, 779 J 

13,043,5704 

26,920,395J 


84 










First Quartile 




Third Quartile 




Quartile Deviation 





This table gives the assessed valuation of 84 township high schools. 

In this table the side heads and the top heads are reversed from 
the custom followed in preceding tables, as explained in Chapter I. 
The assessed valuation is grouped as to 500,000, 500,001 to 1,000,000, 
the number of high schools in each group in each horizontal column 
following the designation of the group. It will be noted that the valua- 
tion increases as to the size of the school, which is merely another way 
of saying that the enrollment corresponds in a broad way with the 
wealth of the community. This correspondence is not entire, however. 
It will be noticed that the median assessed valuation of the schools of 
Class B is smaller than that of Class A. This is because the school dis- 
tricts of both Class A and Class B are largely rural in type, and this 
represents a chance variation. 

In Table XXX are shown the tax rates for township high school 
districts, based upon the returns of 1915. 

The law provides that each township high school district as well as 
every other school district in the State may assess the property of the dis- 
trict at the rate of 11/2 per cent for building purposes and 11/2 per cent 
for educational purposes. It will be noted that this ' is an arbitrary 
division of the school funds. It was not originally based upon any 
scientific determination of the relative needs of the schools of the State 
so far as building and instruction are concerned. This is one of the 
problems that ought to be solved by a scientific study of school finances. 
x4fter a building enterprise has b6en successfully carried through there 
is no reason why the li/o per cent should be the rate allowed for this pur- 
pose. It would seem proper that this rate should be very much lowered 
and that the rate for educational-purposes might be materially increased. 
In the case of many needy districts this would solve many financial prob- 
lems. This is in part taken care of by recent legislation, which allows 
the people by special vote to make the ratio 2 per cent for educational 



85 



TABLE XXX— TAX RATES 1915— (SPECIAL REPORT). 





A 
1-100 


B 

101-200 


C 
201-300 


D 

301-500 


E 
501-Over. 


Total. 


Total schools 


29 


17 


11 


5 


4 


66 






Kate for educational purposes— 

0- .25 














. 26- . 50 . 


11 

10 
5 

1 
2 


4 
5 
3 
2 
3 








15 


.51- .75 


5 
3 
2 
1 




1 


21 


.76-1.00 . .. 


1 
3 

1 


12 


1.01-L25 


1 
2 


9 


1. 26-1. 50 


9 






Total 


29 

.63 

.53 

.455 

.86 

.465 

14 


17 

.79 
.70 
.52 
1.23 
.355 

11 


11 

.91 
.79 
.70 
1.24 
.54 

8 


5 

1.094 
1.16 
.875 


4 

1.09 
1.17 
.91 


66 














Third Quartile 












Total schools 


5 


4 


42 






Kate for building purposes- 

0- .25 


4 
4 
2 
2 


5 
3 

1 
2 


4 
3 






13 


. 26- . 50 




2 
1 

1 


13 


. 51- . 75 


5 


. 76-1. 00 




6 


1. 01-1. 25 


1 


2 


1. 26-1. 50 


2 




3 












Total 


14 

59 
.315 
.215 
.975 
.380 

39 


11 

.38 
.28 
.20 
52 
.16 

22 


8 

39 
.28 
.12 
.855 
.367 

11 


5 

.83 
.83 
.455 


4 

51 
.475 
.34 


42 










First Quartile 




Third Quartile 














7 


4 


83 






Total tax rate— 

0- . 25 . ... . . 


1 
8 
10 
9 
5 
1 
1 
1 










1 


. 26r- . 50 


1 
4 

7 
3 
4 








9 


. 51- . 75 


1 
4 
3 
1 
1 






15 


.76-1.00 






20 


1. 01-1. 25 


1 
1 
3 


1 
1 
1 


13 


1.26-1.50. . 


8 


1. 51-1. 75 


6 


1. 76-2. 00 


2 

1 


5 


2. 01-2. 25 




1 


1 


3 


2. 26-2. 50 




1 


1 


2. 51-2. 75 






1 




1 


2. 76-3. 00 


1 








1 














Total 


39 

.87 
.77 
.51 
1.08 
.285 


22 

1.09 
.89 
.765 

1.41 

.645 


11 

1.20 
1.10 

.91 
1.27 

.18 


1 

/ 

1.72 
1.68 
1.35 
2.06 
.35£ 


4 

L60 
1.565 
1.315 
1.90 
.30 


83 


Average 




Median 




First Quartile 




Tliird Quartile 




Quartile Deviation 









purposes and 1 per cent for building purposes, but there are cases when 
the proportion in favor of educational purposes should be much larger 
than this. In fact, there is not much justification for having a division 
in the law at all. The entire matter might very properly be left to the 
boards of education to determine, that is, they might be allowed to assess 
3 per cent on the total assessed valuation and divide it as the needs of 
the district required. If there were adequate and special supervision of 
this matter providing for the formation of budgets, no evils could grow 
out of a plan of this kind. In Table XXX the rates which the various 



86 

township high school districts are assessed for townsliip high school dis- 
tricts are shown, also the rate for building purposes, and the sum of 
the two or the total tax rate. In this table the township high schools 
classed according to enrollment are shown in the first horizontal col- 
umn at the top. In the vertical column to the left is shown a 
grouping for the tax rates. For example,' the figures 0-25 indicate 
the tax range from to 25 cents on the dollar; the figures 26-50 
indicate the tax range from 26 cents to 50 cents on the dollar. Head- 
ing the table from left to right there are 11 schools of Class A 
whose tax rate for educational purposes is 26 cents to 50 cents on the 
dollar; 4 in Class B whose rate for educational purposes is 26 cents 
to 50 cents on the dollar, etc. In looking at the rate for educational 
purposes it will be noted that schools of Class B and Class C have nearly 
the same rate, namely, 70 cents in the case of Class B and 79 cents in 
the case of Class C. Class D and Class E have also nearly the same 
rate, $1.16 in the case of Class D and $1.17 in the case of Class E. It 
will be noted by an examination of this table that 11 districts in Class 
A have a tax rate of only from 26 cents to 50 cents. . There is a total 
of 9 schools which have a rate of $1.26 to $1.50. 

There is quite a good deal of variation in the rate for building 
purposes. The median in Class A is Sli/o cents. In the cases of 
Class B and Class C it is 28 cents; in Class D, 83 cents; in Cl'ass 
E, 471/2 cents. 

Perhaps the total tax rate represents the condition more thor- 
oughly. Examining this table, it is to be noted that there are 15 schools 
which have a tax rate of only 51 cents to 75 cents, in fact, most of the 
schools have a total tax rate of less than $1.00. The truth, however, 
is that in the case of township high schools the boards do not use their 
full taxing power. Looking at the bottom of the table, it will be seen 
that the median total tax rate in the case of Class A is 77 cents, and 
that 50 per cent of the schools in Class A expend only from 51 cents 
to $1.08. In Class B the median is 89 cents, and the middle 50 per cent 
expend only from 761/0 cents to $1.41. In the case of Class C the 
median total tax rate is^$1.10, the middle 50 per cent expend only from 
91 cents to $1.27, and so on throughout the table. 

The facts shown in Table XXX are shown graphically in Fig- 
ure 13. 

The relative situation in the various groups is shown in this graph. 
As heretofore, an equalized scale is shown at the left and a scale of 
medians at the right. 

In this chapter the current expenses of the high schools in the State 
are studied in detail. It is found that these expenses increase directly 
as to the enrollment. It is also found that the township high schools 
expend more in the various groups than the city high schools do. Here 
as in the preceding chapters it is found that the deviation is greater in 
the township high schools than in the city high schools. It is also 
found in the case of the tax rate that the township high schools do not 
come anywhere near exhausting their resources. It is also shown that 
a division of the total tax rate in equal parts, for building purposes and 
for educational purposes, is an illogical division and that educators 



87 



should address themselves to the task of securing remedial legislation 
on this point. 

It is clear from the foregoing considerations that the township high 
school provides in a financial way an adequate plan for taking care of -the 
uro-ent hurdens which have in the last quarter of a century grown up in 



Fig. 13. — Total Tax Rates. The 
township high schools are classified at the 
bottom according to the number enrolled. 
The solid upright bars represent the total 
tax rates in township high schools from 
the first quartile to the third quartile. 
M represents the median total tax rate 
in each case. An equalized scale of the 
total tax rates is shown at the left and 
a scale of the median at the right. 



^.lo 












l.kS 


2.00 






I.90 






(.80 


^n 




1.70 


l.laO 


-M- 


_I5& 

1.10 
0.77 


t.so 


l.4o 
1.30 


-M 


1 

} 


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1. 10 


1-00 
0.90 


0.80 




— 


010 


O.bO 


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OAQ 




'i ^ Ji i 







connection with the management of secondary education. Eemedial leg- 
islation should put the city high schools on the same basis, or at least a 
consistent policy, giving adequate financial support, should be provided 
for all of the high schools in the State. 



88 



CHAPTER V. 



COURSE OF STUDY. 

It is not the purpose of the present chapter to go into detail in the 
matter of investigating the curriculum of the high schools of the State. 
It is rather to discover the situation with reference to prescribed and 
elective courses, the frequency and breadth of the vocational courses, jind 
to note the relative equipment of the various high schools as to the 
opportunities they provide in elective and vocational courses. It will be 
the plan to find out what the practice is in the township high schools of 
the various sizes. 

In the pursuit of these ends, the first topic for consideration is the 
number of units required for graduation. This information is tabulated 
in Table XXXI, which is derived from Item 47 of the Approval Blank. 

The sizes and kinds of schools are shown at the left of the table. It 
will be noted that there is one column devoted to the total number of 
schools, another to the schools omitted, and still another to schools report- 
ing. This information is reported in the form of units. It will be noted 
that there is one vertical column headed. Less than 12, another 12, an- 
other 13, and so on. The table when read from left to right shows that 
in the city high schools of Class A there is one that requires less than 
12 units for graduation, there are 10 which require 12 units for gradua- 
tion, there are 2 which require 14 units for graduation, and so on 
throughout the table. It will be noticed in this connection that there is 
also a percentage column in all of the various groups. For example, 
there are 187 city high schools of Class A which require 16 units for 
graduation, which is 81.65 per cent of the number of schools reporting. 
Noticing the figures in the grand total, there are 444 schools which report 
on this section of the Approval Blank. That is, of 444 schools on this 
section of the Approval Blank, Class D of the Curriculum, there are 418 
schools which report on this item. The percentages in each case are 
based upon the total number of schools reporting on this section. 

An examination of this table shows very clearly that the city high 
schools and the township high schools are quite uniform in the number of 
units required for graduation. This is not only true in the schools of the 
different sizes but it is also true in the totals. For example, there are 
262 city high schools which require 16 units for graduation or 79.63 per 
cent of all of the city high schools reporting on this section. There are 
73 township high schools" requiring 16 units for graduation or 82.02 per 
cent of all of the township high schools reporting on this item. The 
total result is that a little over 80 per cent of all of the high schools of 
the State require 16 units for graduation. It is to be noted, however. 



89 





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90 

that a little over 13 per cent require 15 units fur graduation, and a little 
over 2 per cent require 17 units for graduation. 

Obviously the next topic to consider after noting the number of^ 
units that are required for graduation is to discover, if possible, the 
number of these units which are prescribed. This information was col- 
lected under Item 4^8 of the Approval Blank, and is displayed in Table 
XXXII. 

The distribution of the schools as to kinds and sizes is shown at the 
top of the table ; the distribution of units at the left side. In this report 
also the total number of schools which are reporting in this Section D 
on the curriculum is given. A horizontal column is also included for 
schools omitted. 

It will be noted that in the city schools of Class A there are 4 higli 
schools which prescribe only 4 units. There are 2 which prescribe 5 
units, and thus the table is read throughout. In this the same as in the 
others the percentages are calculated, that is, noting that there are 14 city 
high schools of Class A which require 9 units for graduation, it is seen 
that 6.51 per cent of the schools of this class require 9 units for gradua- 
tion. That is, this percentage is based on the number of schools report- 
ing on this item. From this table the median, first quartile and third 
quartile are calculated. A glance at the table thus constructed shows 
that as the size of the school increases the number of prescribed units 
decreases. For example, 13 is the median requirement of units in the 
schools of Class A, 9 in Class B, 8 in Class C, 7 in Classes D and E. 
It will also be seen that the township high schools prescribe in the 
smaller schools such as Classes A and B a smaller number of units. In 
the light of other information which we have accumulated in other 
parts of this study, it is very likely that the township high schools in 
this case are able to prescribe a smaller number of units because of the 
larger number of courses that they can offer and their larger facilities in 
teaching force. 

The next inquiry following upon the number of units that are pre- 
scribed is to discover what these prescribed units are. This is reported 
in Item 50 of the Approval Blank and is collected in Table XXXIII. 

As previously suggested, there are 444 schools making report on this 
section. On this item the number of schools which are omitted in each 
case is shown in a separate column, and the number of schools reporting 
on this item is shown in still another column. The percentage of schools 
omitted and the percentage of schools reporting this item are also shown. 
This percentage is valuable in showing what proportion of the schools 
give the information, and we thus have a definite notion as to the value 
of the information submitted. 

It will be seen that 45 per cent of the schools in the State have 
reported on this item, that is, there are 200 high schools. This is suffi- 
cient to give a satisfactory body of knowledge on which to l)ase conclu- 
sions. 

Another column is provided in Avhich the total number of units pre- 
scribed is given. This information is tabulated for each of the large 
groups of subjects usually tavight in high school, namely, English, 
Mathematics, Language, History, Science. In the case of History, for 



91 











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97 

example, those eoui^es wliieh are definitely related to History are in- 
cluded in this general head, that is, such siihjects as Civics and Industrial 
History. History signifies in addition to its own proper courses such 
course as Industrial History, Civics, etc. Language means foreign lan- 
guage, Latin, French, German, etc. The topics which would not be 
included properly under these various major heads are tabulated separ- 
ately under the caption "Other Subjects." 

Under each of these various captions, vertical columns are pro- 
vided indicating the number of units, for instance, Vsj unit, 1 unit, 1% 
units, and so forth. Opposite these in horizontal columns the number 
of schools which require the units indicated are given, and next to that 
the ptpreentage of schools which require the number of units indicated is 
shown. For example in English 76 city high schools or 83.5 per cent 
city high schools of Class A require four years of English ; nineteen high 
schools or 73.07 per cent of township high schools of Class A require 
four years of English and so on throughout. These percentages are 
based upon the number of schools re})orting this item. 

Examining the portion of the table devoted to English, 72.5 per cent 
of all the schools in the State require four years of English; 3(5.5 per 
cent require three years of English. This policy is very definite, as the 
table shows. Another thing that is noticed in connection with the En- 
glish prescription is that as the school is smaller there is a greater per- 
centage of the schools which require four years. This is very likely due to 
the fact that the smaller schools cannot provide a wide range of electives 
and, hence, require a larger percentage of such subjects as English, 
Mathematics, and so on. A negligible number of the schools of the 
State (.5 per cent of them) make no prescription in English. 

Under the head of Mathematics it will be noted that the small 
schools in large numbers require 2y2 and 3 years. The explanation here 
is similar to that noted under the head of English. The small schools 
do not have a large range of electives and, hence, must prescribe the 
academic siibjects which they are required to teach. In Class A 26.49 
per cent of the schools require Si/o units, 32.47 per cent require 3 units. 
There is a pretty definite tendency throughout the groups of schools to 
require 2 units, in fact, 30.5 per cent of all the schools in the State re- 
quire 2 units, and 21 per cent require 2i/2 units. A large number of 
schools (20.5 per cent of them) make no requirement in Mathematics. 

Under the head of History we note that 35 per cent of the schools 
of the State have no prescribed units in History. Where there is a pre- 
scription it is more likely to be 2 units, that is, there are 32 per cent of 
the schools in the State requiring 2 units; 19.5 per cent require 1 unit. 

In Language a majority of the schools do not prescribe any work, 
In case there is a prescription it is more likely to be 2 units, as 19.5 per 
cent of the schools of the State require two years of work. 

Where Science is required, the most frequent practice is to require 
2 units. Of the schools of the State 23.5 per cent require 2 units. A 
comparatively large number require 1 unit, that is 17 per cent of the 
total, but a third of the schools of the State do not require any Science. 

— 7 I H S 



98 

Under the head of Other Subjects it will be seen that there is a 
straggling tendency to require some other subjects besides the preceding 
ones. 

There does not seem to be any uniform practice as distinguishing 
city high schools from township high schools in the kinds of subjects 
prescribed. 

The information collected under Item 50 of the Approval Blank is 
displayed in another way in Table XXXIV. 

In this table are shown the total number of units prescribed in the 
various sizes and kinds of schools. In addition to this separate columns 
show the total number of units prescribed in each of the various groups, 
that is, the total number prescribed in English, Mathematics, etc. The 
percentage of each of these various groups based upon the total pre- 
scribed groups is also shown. For example, in city high schools of Class 
A the total number of units prescribed in all of these schools is 1,062^. 
Of these 351 are prescribed in English, 228 are prescribed in Mathe- 
matics. The ratio that the prescribed units in English bears to the total 
prescribed units is 33.03 per cent. The same for Mathematics is 21.45 
per cent. In a similar manner the table is read throughout. 

By referring to the total figures shown at the bottom of the table, 
it is readily seen that the order in which the schools of the State pre- 
scribe these various groups is English, Mathematics, Science, History, 
Language, Other Subjects. Of al-1 of the units prescribed 36.69 per cent 
are in English, 22.61 per cent of all the units prescribed are in Mathe- 
matics, and so forth. This same order is also preserved when we examine 
the totals for city high schools and township high schools separately 
except that in the township high schools Science and History are re- 
versed. 

The information in this table is shown graphically in Figure 14. 
In Figure 14 the first column at the left shows the subject under consid- 
eration. The second column shows the size of the school in each case. 
The third column shows the percentage which the number of units pre- 
scribed in each subject bears to the total number of units prescribed. 
For example, at the top of the graph it is noted that 33.03 per cent of 
the total prescribed units are in English in the case of the city high 
schools; 36.46 per cent of the total prescribed units are in English in 
the case of the township high schools. The prescribed units in the city 
high schools are represented graphically by the hollow bars; the pre- 
scribed units in the township high schools are shown by the solid bars. 
The order in which these various subjects are required stands out very 
clearly, as stated above, in an examination of this graph. 

Looking at the graph in more detail it appears very readily that En- 
glish is required to a larger extent in the city high schools than in the 
township high schools. 

In Mathematics the township high schools prescribe more units in 
Classes A, B and E. In Classes C and D they prescribe less. 

In the case of Science the township high schools prescribe a less num- 
ber of units in Class A and Class E. They prescribe more in Classes B 
and D, and practically the same amount in Class C. 



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100 




Fig. 14. — Prescribed units. — Dis- 
tributed as to enrollment. In the ver- 
tical oblong spaces comprising the first 
vertical column are shown the number 
of the question in Form 2 from which 
the information is derived and subject 
represented in each respective section 
of the graph. The second vertical 
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classification of the schools based on 
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number of units prescribed in each 
subject bears to the total number of 
units prescribed. The horizontal bars 
represent this percentage in each case. 
The hollow bars represent the city 
high schools and the solid bars the 
township high schools. 



101 

In History the township high schools prescribe markedly more in 
every ease with the exception of Class B. This information is thrown up 
in still another form in graph 15, in which the total prescribed units arc 
shown. The subjects are shown in the second column and the percentages 
in the third. The gi-aphs can best be read as, for example, 36.42 per cent 
of the total prescribed units in the city high schools are in English; 37.59 
per cent of the total prescribed units in the township high schools are la 
English. These facts are shown graphically in that the percentage for 
city high schools is represented by the hollow bar, and the percentage for 
the township high schools, by the solid bar. It is very clear that the 
township high schools require more English and more Mathematics than 
the city high schools. They require less Science and Language. The 
requirement in History is practically the same. 

An obvious corollary to the number of units that are prescribed in 
the various subjects is the num])er of elective units. 



Fig. 15. — Prescribed Units. — Totals. 
In the first vertical oblong space at 
the left is shown the number of the 
question in Form 2 from which the in- 
formation is derived and the subject of 
the graph. The second vertical column 
shows the percentage which the num- 
ber of units prescribed in all the 
schools of a given group in each sub- 
ject bears to the total number of 
units prescribed in the given group. 
The horizontal bars represent their 
percentage in each case. The hollow 
bars represent the city high schools 
and the solid bars represent the town- 
ship high schools. 



u 
• in 

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-0 


SuO-JSCT 


Per- 
cent 










Engl /s^ 


36.4J 
3759 










/l/^THEMATICS 


22.41 
2309 


^^^^^ 








■5ciE/WC£ 


15.91 
14:59 


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Language. 


lO.J 
9.02 


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Other Subjects 


.73 
1.18 


1 









This information was collected under Item 49 of the Approval Blank 
and is collated in Table XXXV. 

In this table the sizes and kinds of schools are shown at the top of 
the table. The total number of schools, furnishing information on this 
section is 444. There is also a column for the schools omitted and the 
schools reporting, with the percentage calculated in each case. In the 
body of the table is distributed the number of schools in each kind a.nd 
class offering a certain number of electives. For example, in city high 
schools of Class A there are 7 which offer no electives, which is 4.73 per 
cent of the number of schools reporting on this item. There are 6 schools 
which offer 1 elective, which is 4.05 per cent of the schools reporting on 
this item. In a similar manner the table is read throughout. 

At the bottom of the table the median, first quartile and third quar- 
tile are calculated. An examination of this part of the table shows that 
the smaller the school the smaller the number of electives offered. The 
median number of electives in city high schools of Class A is 4 ; Class B, 
6 ; Class C, 7 ; Class D, 9. This "is due to the fact that the smaller high 
schools do not have the teaching force or the equipment to offer a large 



102 





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E-icccats 



104 

number of electives. It will also be noted that the towuship high schools 
offer a larger number of electives than the city high schools. For ex- 
ample, in Class A the median number of electives in the township high 
schools is 5 whereas the median number of electives in the city high 
schools in the corresponding group is 4. An examination of the other 
groups shows the same situation, except that in Class D the township 
high schools and the city high schools do not vary largely in this respect. 

Following up this same line of inquiry, it is interesting to note how 
many courses are offered. In neither of these blanks was the informa- 
tion shown in such form that the number of units in each subject offered 
could be tabulated. The closest approach to this was the high school 
courses oil'cred on tbe first ])age of Form 2. The question is asked in this 

form, "High School Courses offered indicate by X and give 

length." Under this head is a small table with the names xVcademic, 
Commercial, Technical (M. T.), Agriculture, and Domestic Economy, 
w^ith a space for the number of 3'cars for each of these courses. 

On cursory examination of the material provided in this space it 
would seem that this would not give us very definite information yet a 
complete tabulation of it does give information that is very dependable 
for comparative purposes. It is all the more dependable because all of 
the high schools (457 of them) report on this item. This information 
is collected and tabulated in Table XXXVI. 

In this table the size and kinds of schools arc shown at the top of the 
table. Below this portion of the table is a horizontal column for the 
number and percentages of schools offering one year, for example of com- 
mercial work, the number and percentage offering two years, and so on 
up to and including four years. Then following this there is a column 
for the total number of schools offering commercial work. A similar col- 
umn is provided for each of the other subjects. 

In addition to the columns mentioned there is a horizontal column 
for the total number of years possible to offer high school work. This is 
found by multiplying the number of schools by four. For example, there 
are 254 city higli schools of Class A, hence, there are 1,016 possible years 
of work in this group of high schools. Below this column is the total 
number of years commercial work is offered. For example, in city higii 
schools of Class A there are 79 years of commercial work all told oft'ered 
in this group of schools. The next column shows the percentage of com- 
mercial work based upon the total time possible, that is, 79 years of 
commercial work ofl'cred is 7.8 per cent of 1,016, the total time possible. 
This method is followed in the case of every subject tabulated, and for a 
proper reading of this table it is important that this fact be remembered. 

The information comprised in Table XXXVI is shown graphically 
in Figures 16, 17 and 18. 

The first fact that is to be noted in an examination of this table is 
that the number of years of academic work offered is exactly the same in 
all of the various groups of schools. Looking at the table more in detail, 
we note that in Class A in commercial work city high schools tend to 
offer one year and the township high schools two years. This information 
is found by noting the percentage of schools that offer the various amounts 



105 



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of work. lu Class B both city high schools and township high schools 
in larger proportion offer four years. In Class C both city high schools 
and township high schools in larger proportion offer four years. In 
Class D city high schools in larger number offer four years, and township 
high schools two years. In Class E the larger proportion of both town- 
ship high schools and city high schools offer four years. The total result 
is that the township high schools offer the largest amount of commercial 
work in every class except Class E. 

In technical work the largest proportion of city high schools offer 
two years; township high schools, four years. In Class B the largest pro- 
portion of city high schools offer two years, and the township high schools 
in almost equal number offer two years and four years. In Class C the 
city high schools offer two years in larger proportion and the township 
high schools four years. In Class D both city and township high schools 
in larger proportion offer two years. In Class E both groups of schools 
in larger proportion offer four years. It will be noted that in technical 
work the tendency is to offer either two years or four years of the work. 
In this subject the township high schools offer the largest amount of work 
in every case except Class E. 

In Agriculture in Class A the township high schools in larger num- 
ber offer one year and the city high schools two years. In Class B the 
largest percentage in each group offer one year. In Class C city high 
schools offer one year in larger proportion and the township high schools 
offer two. In Class D the city high schools are evenly distributed in 
their offerings of one, two and four years. The township high schools 
in larger proportion offer one year. The total situation in this group 
is that the tendency is to offer one and two years in Agriculture, and the 
township high schools offer more in every instance except in Class D. 

In Domestic Science the tendency in both city and township high 
schools is to offer two years. In Class B the city high schools in larger 
proportion offer two years and the township high schools four years. In 
Class C the larger proportion of city high schools offer two years and the 
township high schools four years. In Class D the city high schools in 
larger proportion offer four years and the township high schools two years. 
In Class E both city and township high schools in larger proportion offer 
four years. In the total it is noticed that all schools have a tendency in 
larger proportion to offer two years, and the second choice is four years. 
In this department the township high schools offer more in every case ex- 
cept in Class E. An examination of the graphs referred to above brings 
out the information in a more marked form. 

Graph 16 is constructed by providing a column at the left in which 
is written the subject represented, next is the size of the school, and fol- 
lowing this is the percentage of time offered in each subject, based upon 
the total high school time possible, calculated in the manner heretofore 
described. Following this the percentage is represented in the city high 
school by the hollow bar, and the situation in the township high schools 
is represented by the solid bar. 

This graph reinforces the statement made above that all of the schools 
involved show the same amount of time devoted to academic subjects. 



112 



In commercial work the township high schools offer more work than 
the city high schools except in Class E. In technical work the township 





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Fig. 16. — Courses offv?red — classified according to size of scliools. In tlie ver- 
tical oblong spaces which comprise the first \ertical column is written the name of 
the subject which is represented in its respective section of the graph. In each 
section of the second vertical column is shown the classification of the schools 
according to enrollment. The third column shows the percentage of time offered 
in each subject in each graph of schools based on the total high school time possible. 
This percentage is represented by the horizontal bars. The hollow bars represent 
the city high schools and the solid bars represent the township high schools. 

high schools offer much more work than the city high schools except in. 
Class D. In Domestic Science the township high schools offer more work 



113 



than the city high schools except in Class E. In the first three classes, 
namely A, B and C, the excess amount of Domestic Science offered by 
the township high school-s is very marked. In the matter of Agriculture 
the excess amount of work in the township high schools as com- 
pared with that offered in the city high schools is very marked in every 
case except Class D. 

In graph 17, the graph is constructed by providing first a column for 
the subject, academic, commercial, etc. The adjacent column shows the 
percentage of the time devoted to the subject in question, based upon the 
total high school time possible. This graph shows in a very marked form 
the fact that in all vocational work the township high schools offer much 
larger time allotments than the city high schools. 



Fig. 17. — Courses offered — Totals. The subjects 
are designated in tlie liorizontal spaces to the left. 
The second column shows the percentag'e the 
amount of work offered in each subject bears to 
the total time possible in each kind of schools. 
The horizontal bars represent tliis percentage. 
The hollow bars represent the city high scliools 
and the solid bars represent the township high 
schools. 





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The same information is again displayed in still different form in 
graph 18. In this graph all of the vocational work is shown. The voca- 
tional work is the sum of all the lines of work shown in the table except 
the academic. The first column is devoted to the size of school; the 
second column is for percentages, that is, the percentage of time allot- 
ment given to vocational work, the sum of the time devoted to commer- 
cial, domestic science and agriculture in the aggregate. For example, in 
Class A city high schools offer 20.9 per cent of the total time possible for 
high school work; township high school offer 58.2 per cent of the total 
time possible for high school Avork. This situation is represented by the 

— 8 I H S 



114 



Total Vocational Wouk 



Fig. 18. — Total vocational work. The first ver- 
tical column shows the classification of high schools 
based on enrollment. Tlie second vertical column 
shows the percentage of total vocational work based 
on tlie total time possible. These percentages are 
represented by horizontal bars. The hollow bars rep- 
resent the city liigh schools and the solid bars the 
township high schools. 



115 

bars at the right. The hollow bar represents the situation in the city 
high schools, and the solid bar the situation in the township high schools. 
From a consideration of the foregoing facts certain general conclu- 
sions may be drawn. The larger the high school the smaller the number 
of prescribed units laid down. The larger the high school the larger the 
number of electives offered. The larger high schools provide wider oppor- 
tunities for vocational work. The township high schools offer wider 
opportunities for vocational work than the city high schools. This is true 
whether we consider the various sizes of high schools separately or 
whether we consider the whole number of high schools in the study as a 
whole. It is in considerations such as these that we must make a corol- 
lary with the work of preceding chapters. In Chapters 2, 3 and 4 we 
foimd that costs in every category in the township high schools were 
higher than in the city high schools. Corresponding with that situatioa 
in this chapter we find that the opportunities provided are more ex- 
tensive, there are a large number of electives and these electives cover a 
wider field. The opportunity for vocational training is much more ex- 
tensive in the township high schools than in the city high schools. 



116 



CHAPTER VI. 



THE PRINCIPAL. 

• In our discussion heretofore we have had to do primarily with the 
material factors in the high school organization. We must now turn our 
attention to the personnel of the high schools of the State^ that is^ to the 
executive officers and to the teachers and the students. The topic for this 
chapter is the discussion of the experience, training, duties and salary 
of the principal. In the reports to the Department of Public Instruction 
upon which these studies were based there is no adequate account of the 
training of the principals. Eathcr accurate information is given regard- 
ing the training of teachers but the blanks are not specific enough to base 
confident conclusions on that part that has to do with the training of 
principals and superintendents. The only information available is that 
which has to do with the degrees of the principals. This information is 
tabulated in Table XXXVII. 

This table reports in one horizontal column the number of schools, 
in another the number who do not report, in another the number of those 
who do report, and in another the number who report but fail to 
report information on this item. 

By referring to the table it will be seen that 450 schools are in- 
volved in this study. Of these, 114 do not report upon this section. 
There are 335 schools which report on this section. Of this latter num- 
ber, 150 do not report on the item of the degrees. In the remainder of 
the table in the various columns are shown the number and percentage 
of principals receiving the various degrees indicated. Only those de- 
grees more usually granted are tabulated. The degree A. M. is reported 
as A. M. whether it is written "A. M." or "M. A. f likewise M. S. It 
will be noticed that there is a column for Total Degrees. This is the 
sum of all the degrees in the preceding columns. Under the head of 
Extra Degrees are listed tliose degrees Avhich are in addition to other 
degrees held by the same individual. The last column is marked Blank 
Degrees. This includes all of those cases which report the information 
on this item but leave the space for degrees blank. 

Xoting the situation in the city high schools in Class- A, if the extra 
degrees are subtracted from the total degrees as, for example, 3 sub- 
tracted from 57 and the blank degrees added, we have a sum equal to the 
number of schools reporting, and the information is accurately checked. 
Some minor discrepancies will be formd in the table due to errors in 
tallying. These discrepancies, however, are of negligible iinportance. 
The percentages noted in the table are calculated on the basis of the 
total number of degrees. 



117 



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118 




119 

It will be noticed on an examination of this table that 56.7 per cent 
of all the degrees granted to high school principals are A. B. degrees, 
20.2 per cent are B. S. degrees, 11.1 per cent are A. M. degrees. An im- 
portant fact to be noticed is the relatively small number of post grad- 
uate degrees. Another fact that may be noted is that in the case of Class 
A there is a smaller number of A. B. degrees in the case of township 
high schools than in the case of city high schools. The total/ however, 
shows a larger percentage of township high schools having degrees than 
city high schools. 

A similar distribution of the degrees was worked out for the super- 
intendents of schools since this information was provided on the same 
blank. This is of no particular value to us in our present study except 
for comparative purposes. 

It will be noted in Table XXXVIII, in which this information is 
presented, that very few reports are made for township high schools. 

This is because of the fact that in only a few cases does the super- 
intendent of the elementary schools supervise also the high schools. In 
a few of these cases reports were made concerning the largest elementary 
schools in the township high school districts even though the superin- 
tendent in such case had no connection with the township high school. 

The table is made up in exactly the same way as the preceding one. 
It will be noticed that 54.1 per cent of the degrees granted are A. B. 
degrees; 15 per cent are B. S. degrees. It will be noted that there are 
a larger number of post graduate degrees for superintendents than prin- 
cipals, in fact, 15 per cent of the degrees are A. M. 

The experience of the high school principals of the State is compiled 
from Item 43 of the Approval Blank, and is shown in Table XXXIX. 

In this table the number of schools making the report are shown in 
the horizontal column at the top immediately below the classification of 
school. The next horizontal column marked "Blank" gives the number 
and percentages of cases in each group in which this part of the report 
is left blank. The purpose of this latter item is to show the relative 
colume of accurate information which is available. It will be noticed in 
the total that there are 118 schools of the 450 who do not report this 
information. It will be thus seen that the information comes from a 
relatively large proportion of the schools of the State, that is, 342! The 
table itself provides a column for each of the years of experience up to 
20 and then one column for over 20. In each of these columns the 
number of principals in each group having a specific number of years of 
experience is set down. The table may be read down or across. Read- 
ing down, there are 8 principals of high schools in Class A who have 
had one year of school experience, 10 who have had two years' experience, 
9 who have had three years' experience, and so forth. The table may be 
read similarly throughout. At the bottom of the table is shown the 
median experience in each group, the first quartile, the third quartile, 
and the quartile deviation. The first third of the table is devoted to a 
discussion of the total school experience of these high school offi- 
cials, the second third to their total high school experience, and the 
third third is devoted to the experience the executive officers have had 
in their present positions. 



120 













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127 

Examining first the total experience of the high school principals, it 
is noted that in every class the township high school principals have had 
more experience than the city high school principals. In looking at one 
of the classes, as for example Class D, it is noted that in the township 
high schools the median experience of the principal is 15 years, and the 
experience of the middle 50 per cent is from 11 to 19 years. 

With reference to the total high school experience, an examination 
of the middle portion of the table shows that there is a tendency for the 
schools of larger size to have principals with longer high school experi- 
ence. This is true of the table as a whole yet it is not true of it in 
detail. For example, principals of schools of Class B have a shorter 
experience than those of Class A. Similarly principals of schools of 
Class D have a shorter experience than those of Class C. But in general 
the statement is true that the larger the school the greater the experience 
of the jsrincipal. In every group the township high school principal has 
had longer experience than the city high school principal. It is to be 
noted that 7 years is the median high school experience of all the prin- 
cipals in the State and that 50 per cent of the principals of the State 
have had from 3 to 12 years of experience. 

Upon examining the last portion of the table with reference to the 
number of years in the school over which the principal now presides, a 
remarkable situation is shown, namely, that the tenure of office of the 
high school principal in Illinois generally speaking is very short. It will 
be noted that the median tenure of office for the State as a whole is two 
years and that 50 per cent of the high school principals in the State 
occupy their position from one to four years. Here as before, the larger 
the school the longer the principal is retained in his position. There is, 
however, very little difference in this respect between Class A and B. 
These two classes are practically uniform, that is, the median tenure of 
office is 2 years. The median tenure of office for Classes B and C also 
is identical, namely, 4 years. In Classes C and E the tenure of office 
of the township high school principal is longer than that of the city 
high school principal. In the case of Class D the city high school prin- 
cipal retains his position longer. 

This table shows a lamentable condition in the educational affairs of 
the State. In order that a system of schools may be stable and develop 
in a healthful way it is necessary that their executive officers be men of 
marked training and experience in their work. That means the occupa- 
tion must provide an opportunity for a life career, with proper remun- 
eration for services well rendered. 

From this table it is very clear that the educational system of the 
State does not provide such an opportunity for men of ability who have 
taken pains to secure proper training. In the first place, the total 
median experience of high school principals the State over is only 9 
years. Fifty per cent of the high school principals have had only 5 to 
17 years of experience. Their total high school experience is shorter 
than this for the obvious reason that many high school principals have had 
previous experience in elementary schools. This double experience, 
part in the elementary school and part in the high school, is a good thing 
in providing them this added variety of experience for their work. The 



138 

unfortunate feature, liowever, is that the high school piincipals retain 
each position that they occupy so short a time. On the whole, the mean- 
ing of the table is that the high school principalship is a transient posi- 
tion. Because it is so transient, the high schools of the State must in- 
evitably suffer from lack of continuity of policy and Jack of settled con- 
ditions, and lack of stability of plan. 

Information regarding superintendents of schools is provided also 
in Item 43 of the Approval Blank and is tabulated in Table XL in the 
same manner as the preceding table. 

An examination of this table shows that the superintendents of 
schools have longer experience than the township high school principals. 
The table shows that the longer the total experience the larger the school 
and the longer has been the experience of the superintendent. In the 
first part of the table it will be noted that since there are columns reach- 
ing only up to 20 and one for over 20 that some of the medians and 
quartiles were entered over 20. This is the only way that this informa- 
tion could be tabulated. 

In this table it is noted that the information is reported regarding 
superintendents in the blanks opposite the spaces provided for the town- 
ship high schools. This is because of the fact that some superintendents 
have charge of both the elementary schools and the high school even 
though there is a separate township high school organization. It also 
comes from the fact that sometimes when a report has been made of 
the township high school the information is also given for the city school 
system even though the superintendent is not a part of the high school 
organization. 

The second part of this table shows that the median high school 
experience of city superintendents is ten years and that the middle 50 
per cent of them have from G to 15 years. It will be noted that this 
table is incomplete for the larger schools Ijut it is relatively complete 
for the smaller ones. 

The same generalization nuiy be made with regard to city super- 
intendents in the smaller schools as for the township high schools as a 
whole, namely, that the positions are transient. 

Some information is available in the reports made on Item 43 of 
the Approval Blank- concerning the daily work of the high school prin- 
cipals. The information with reference to the number of classes taught 
daily by the principal and the number of subjects which he teaches is 
shown in Table XLI. 

In this case as in the preceding ta])les the number of schools giving 
this report and the number not reporting are tabulated for the purposes 
mentioned above, showing the relative number of schools reporting. The 
information is very complete, 330 schools out of 450 giving this in- 
formation. Eeading the horizontal column for city high schools of 
Class A, we find that three principals teach one class per day, 4 teach 
2 classes per day, 14 teach 3 classes per day. The table may be read in a 
similar manner throughout. 

We find the situation here as expected, namely, that the principals 
in the smaller schools teach a larger number of classes daily. The 
median for Classes A and B is 5 periods per day. Fifty per cent of the 



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136 

jniiicipals in these two classes teach from 4 to 6 periods per clay. Not- 
ing the situation in the township high schools of Class D, it is seen that 
the median number of classes taught by i^rincipals in schools of this 
group is one period 2>er day, also that 50 per cent of the principals in 
this class teach one period per day. In Classes B and C the principals 
of township high schools teach a smaller number of classes than prin- 
cipals of city high schools. 

The latter half of this table is devoted to the compilation of in- 
formation regarding the number of subjects taught by principals daily. 
By subjects in this table is meant one group of subjects. For example, 
all the language is included in one group, whether French or German. 
All the sciences are included in a single group. After this manner the 
subjects are grouped in the following way, English Language, Mathe- 
matics, Histor}^, Science, Vocational. 

It will be seen that as the size of the school increases the number of 
subjects taught daily by the principal decreases. There is no appreciable 
difference as to the number of subjects taught daily between city high 
schools and township high schools. 

In Table XLII the work of superintendents is displayed in a man- 
ner similar to that of the principals in the preceding table. 

As would be expected, the superintendents teach less than the 
principals. The information in this table is meager because the report 
was made by principals and not superintendents. Two hundred and 
twenty-three schools do not report this item. Of course, only in a few 
cases do superintendents teach in township high schools where there is 
an arrangement for cooperation between elementary schools and township 
high schools in the same territory. Hence, the table as regards township 
high schools is of little value. 

Supervision is assumed to be the primary function of the principal 
of the high school. It is clear that in the smaller high schools he is a 
teacher primarily and not a supervisor because his time is consumed in 
teaching. 

In Item 44 of the Approval Blank was reported information coa- 
cerning the amount of time spent by the principal in supervision. By 
the fonn of the question the information could come in in any form 
chosen by the reporting officer. The information actually did come 
in a great variety of expressions. For example, the principals reported, 
"1 period daily,"" ''None," "A little," "45 minutes," "3 hours," "2 hours," 
and so forth. In order to get this information in form so that it might 
•be tabulated these reports were reduced to fractions of the day. For 
example, one period would be less than a fourth, two periods would be 
more than a fourth, an hour would be less than a fourth, two hours 
would be a fourth or more. It was found by treating the information 
in this way that the reports could in a manner that is fairly acceptable 
be reduced to a common denominator. The information treated in this 
way was then tabulated in Table XLIII. 

A column is shown for the blanks, that is for the number and per- 
centages of those supervisory officers Avho made no report. Since there 
are 446 schools shown in these reports and only 52 of them failed to report 
on this item it will be seen that the information is very complete. There 



137 



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140 

is a column I'or superintendents. This means tliat tlie principal when 
reporting indicates that the superintendent is responsible for supervi- 
sion. Then there is a column for Less than i/4, i/4 or more, etc., as 
indicated. 

A little over 23 per cent of the principals in Classes A and B report 
that there is little or no supervision. In Class A 55 per cent of the 
principals of township high schools devote I/4 or more of their time to 
supervision found by adding columns "i/4 ^^^ more" to those above. In 
this class 35.6 per cent of the principals of city high schools devote 14 
or more of their time to supervision. It is clear that in this case the 
principals of township high schools give a larger amount of their time 
to supervision than in the case of the city high schools. This same prin- 
ciple will be seen throughout all the classes, namely, that the township 
high school principals devote a larger proportion of their time to super- 
vision, and this is also notable in the total results. In Class A 39.58 pei" 
cent of the principals found by adding columns "14 ^^^ more" to those 
above devote a fourth or more of their time to supervision; in Class B 
37.48 per cent, in Class C 56 per cent, in Class D 68.17 per cent, in Class 
E 77.77 per cent. In other words, the larger the school the larger pro- 
portion of the principal's time is devoted to supervision. A large num- 
ber of the principals in Classes D and E devote all of their time to 
supervision. In the total results 38.8 per cent of the principals of city 
high schools and 59.13 per cent of the principals of township high schools 
give one-fourth or more of their time to supervision. 

The next subject in order is the discussion of the salaries of the 
principals. Under Item 43 of the Approval Blank information was 
collected on this topic, and is shown in this study in Table XLIV. 

In this table information is given regarding 33,3 high schools. This 
table is constructed in exactly the same manner as the preceding tables. 
The information is also shown graphically in Figure 19. 

A^ote the wide difference existing between the practices of the city 
high schools and the township high schools in the matter of the prin- 
cipal's salary. Salaries are much superior in the case of the township 
high schools to those in the city high schools of the same size. In facr, 
Cjuite frequently the township high school of a certain size gives a salary 
surpassing that of the principal of the city high school of the next larger 
size. 

Eeading the table as it pertains to an individual class, for example 
Class D, it will be noted that the township high schools of this group 
have a median salary of $2,500 and that the middle 50 per cent of them 
have salaries from $2,250 to $2,675. 

Under Item 43-A in Form 2 information is collected on this topic 
as it pertains to salaries of principals and supervisors who teach less than 
half time. This information is shown in Table XLV. 

The table is constructed in the same manner as the preceding one, 
and the information is graphically shown in Figure 20. This table and 
graph verifies and reinforces the information shown in the preceding 
table and graph, though it is a group of people a little differently selected. 
It is that group of principals who teach a small portion of their time. 
Although supervisors who teach less than half time is also included 



141 



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143 

here there are not many supervisors who work in the high schools. There 
are no figures showing the number of sripervisors working in township 
high schools as compared to city high schools. The comparative situa- 
tion in this matter is presumably about the same. For example, music 
supervisors in many cases give part of their time to the township high 
school and part to the underlying elementary schools. A similar situa- 
tion exists in the city high schools. 

In Item 42-C of Form 2 still more information is provided on this 
general topic with a still different selection of principals, namely, those 
who do no teaching. On the basis of the information provided in this 
item Table XLVI and Figure 21 are constructed. 



Fig. 19. — Salaries of principals. The 
high scliools are classifled at the bottom 
according to number enrolled. The up- 
right bars represent the range of salaries 
from the first to the third quartile ; the 
hollow bars represent the city high schools 
and the solid bars the township high 
schools. M represents the median salary 
in each case. An equalized scale of 
salaries is shown at the left and a scale 
of the medians at the right. 



4000 












4000 

_ 2.5 op 

~2bb o" 
i5oo 


3500 


1 


3000 


2.500 




hi 

M' 




2000 




1 


1500 


M 




rl h 

'OOO I'M 1 




- 


135^0 

IZOO 




IIOO 

' "990 


500 


906" 


1 lOl 2oi 30) SOI 

To To TO TO AND 

roo 200 500 500 ctn 



It will be noticed that in this case the median, salary of the prin- 
cipal of the township high school is less than that of the principal of 
the city high school, and this tendency is accurately displayed in the 
graph. The meaning of this is that the township high school principal 
ceases teaching at a lower level of salary than the principal of the city 
high school, that is, he is relieved, earlier from the burden of teaching 
than the city high school principal. It is a situation entirely in accord 
with the general results of our investigation so far, namely, that the 
township high school provides financially more liberally than does the 
city high school and the township high school principal, as stated above, 
is relieved from the burden of teaching sooner than the city high school 
principal. 



144 



M 4200 



4- OOP 



3500 



3000 



2000 



IS^OO 



500 




1 101 2oi 301 501 

TO To TO TO A NO 

loo 200 300 500 OVER 



Fig. 20. — Salaries of principals and 
supervisors who teacli less tlian half time. 
The high schools ai-e classified at tlie 
bottom according to the number enrolled. 
The upright bars represent the range of 
salaries from the first quartile to the 
third quartile. The hollow bars represent 
the city high schools, and the solid bars 
the township high schools. M represents 
the median salary in each case. An 
equalized scale of salaries is shown at 
the left, and a scale of the medians at 
the right. 



4-000 


m' 


m. . 


3750 

_3J83. 
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ZOOO 


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25roo 






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I500 






lOOO 

279 


1000 


M •--- 


SCO 


|m 






1 101 201 301 5"0\ 
TO TO TO TO And 
loo 200 300 500 oviR. 



Fig. 21. — Salaries of principals who 
do no teaching. The high schools are 
classified according to the number en- 
rolled. The upright bars represent the 
range of salaries from the first quartile 
to the third quartile : the hollow bars re- 
present the city high schools, and the 
solid bars the township high schools. M 
represents the median salary in each 
case. An equalized scale of salaries is 
shown at the left, and a scale of the 
medians at the right. 



145 







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146 

Some information on this point was compiled from Mr. Counts' 
preliminary tabulations on the North Central Association, based on the 
reports of 1913. This information is tabulated in Table XLVII, and is 
designed to show the situation comparing, all of the schools of the North 
Central Association, all of the schools of Illinois outside of Chicago, and 
the township high schools of Illinois. There are about 150 high schools 
in Illinois belonging to the North Central Association. Of these 39 arc 
township high schools. The medians of these three groups are calculated 
and shown in this table. It was not thought worth while to make a de- 
tailed tabulation of this information. The. schools of the various groups 
are shown in the latter part of the table. It will be readily seen that 
there is a constant tendency throughout all of the groups, which is that 
the Illinois high schools pay their principals a higher salary than the 
North Central Association schools do as a whole, and that the township 
high schools in Illinois pay a higher salary than the North Central Asso- 
ciation schools, and a salary also higher than the Illinois high schools 
pay. For example, in Class D the median salary in the North Central 
Association is $1,683, in Illinois high schools outside of Chicago it is 
$2,300, and in the township high schools for this group the median is 
reported as $2,600. 



TABLE XLVII— MEDIAN SALARIES OF PRINCIPALS fNORTH CENTRAL BLANK). 





A 


B 


C 


D 


E 


F 


TotaL 


North Central 


$1,216 
1,500 
1,450 


$1,158 
1,350 
1,450 


$1,312 
2,200 
2,250 


$1,683 
2,300 
2,600 


$2,300 
2,250 


Over $3,000 
Over 3,000 
Over 3,000 


$1,342 




1,659 


Township high school 


2,000 







Since the salaries of superintendents were also reported in Form 43 
of the Approval Blank, for comparative purposes it was decided to com- 
pile this information also. This information is given in Table XLVIII 
and is shown graphically in Figure 23. 

At the left of this table in the vertical column marked "No. of 
schools" is shown the number of schools reporting on this item, 232 
schools in all. There are a few straggling cases here in which the super- 
intendent is reported as supervising the work of the high school. . As an 
example of the type of information shown here, the situation in Class D 
may be noted. The median salary of superintendents of schools of the 
size listed in this group is $2,200; the middle 50 per cent are paid $2,100 
to $2,300. In Figure 22 is shown graphically a comparison of the sal- 
aries of city superintendents and high school principals. This graph is 
based upon Tables XLIV and XLVIII. 

An equalized scale is shown at the left of the graph and a scale of 
medians at the right. It is very readily seen that the township high 
school principals secure about the same or a smaller salary than the city 
high school superintendents in the case of the smaller schools. In the 
case of schools having an enrollment of over 200 pupils the township 
high school principal receives a markedly larger salary than superin- 
tendents of schools having under their supervision high schools of a 



147 



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148 



similar size. In other words, city superintendents supervising an ele- 
mentary school system and also the high school system receive a smaller 
salary for doing this than the township high school principals who have 
high schools alone of equal size to administer. 

Certain conclusions may be drawn from the information developed 
in this chapter. By far the largest proportion of principals and super- 
intendents have collegiate degrees. In the matter of total experience of 
high school principals, this experience increases with the size of the 
school. This is also true as regards the high school principal's high 
school experience and also his experience in the school which he is at 



4-000 


* 


Ji 




-Aooq 


35oo 


3000 


2500 


^7f?. 

_25oq 

2200 

2000 
_ J^°P. 

]5oo 

1350 


2000 


1500 


1000 W ■ 






1100 






lOBO 


TO -ro 
\oo 200 


201 

TO 

3oo 


301 

To 

5bo 


5oi 
AND 
OVER 



Fig. 22. — Salaries of city superin- 
tendents and township high school prin- 
cipals compared. The high schools are 
classified at the bottom according to the 
number enrolled. The upright bars re- 
present the range of salaries from the 
first quartile to the third quartile. The 
hollow bars represent salaries of the city 
superintendents and the solid bars the 
salaries of the township high school prin- 
cipals. M represents the median salary 
in each case. Ap equalized scale of 
salaries is shown at the left, and a 
scale of the medians at the right. 



present administering. The principal of the township high school has a 
longer teaching experience, a longer high school experience and a 
longer experience in the school in which he is now at work than the city 
high school principal. The city superintendent has a longer experience 
in all three of these categories than the township high school principal. 
It is clearly evident from the information shown in this chapter that the 
position of the principalship is entirely too transient. It is also shown 
that the city superintendency is likewise a transient position. As to the 
work which the principals do, the number of classes taught daily decreases 
with the increase in the size of the school, and the number of subjects 



149 

taught daily decreases with the size of the school. This same statement is 
true with reference to the city superintendent. As to the proportion of 
tirne spent by the principal in supervision, this increases as the size of the 
school increases. The township high school principal devotes a larger 
proportion of his time to supervision than the city high school principal. 
The salaries of township high school principals are markedly greater than 
the salaries of city high school principals for schools of the same size. 
The salaries of high school principals in the township high schools are 
larger than the salaries of city superintendents who have a system of 
schools containing a high school of the same size. The salaries of town- 
ship high school principals are greater than the salaries of principals in 
the North Central Association as a whole and also greater than those of 
high school principals in the same size high schools outside of Chicago. 



150 



CHAPTER VII. 



TEACHEES. 



By far the most important factor in the efficiency of any educational 
institution is its body of instructors. Entirely too little attention has 
been given to this feature of school administration. School boards and 
school executives are often disposed to expend heavily upon the more 
tangible features of the school organization as, for example, buildings, 
grounds and equipment. This is probably due to the fact that such 
material evidences of an organization are more easily understood. It is 
often possible to spend thousands of dollars for comparatively needless 
expenditure in the way of buildings and equipment. Heavy repairs may 
be undertaken without great agitation in the community whereas a com- 
paratively small increase in the salary of the teaching force often results 
in criticism and opposition. 

In this chapter we address ourselves to the examination of the situa- 
tion with reference to the teaching force, with particular reference to 
training, experience, daily work and salary. 

Information regarding the training of teachers was collected under 
Item 12 of Form 2, and has been tabulated in Table XLIX. 

The information shown in Table XLIX is displayed graphically 
in Figure 23. In this table there is a series of vertical columns desig- 
nated as A, B. and C, etc., up to G, each corresponding with the 
subdivision of the information as shown in Item 12. The higher the 
letter the higher the point reached in the academic training of the 
teacher. For example, if a teacher is a graduate of a State normal 
school he is not reported as a high school graduate; if he is a college 
graduate, he is not reported as a State normal graduate, and so on 
throughout the table. In the latter half of the table is shown the sta- 
tistics with reference to those teachers who did not graduate from any 
institution. This is handled in exactly the same way as the previous 
part of the table. For example, if a teacher attended the State normal 
he is not reported as having attended high school. Similarly, if he is 
reported as having attended college, he is not reported as having attended 
the State normal school although he has attended such an institution. 
In other words, teachers are reported each but once in the information 
provided under this item. The number and percentage of teachers hav- 
ing the various grades of training indicated at the head of the column are 
shown beneath. For example, in city high schools of Class A there are 
316 teachers out of a total of 721, amounting to 43.8 per cent of the num- 
ber, who ale graduates of college only. In this same group there are 
150 teachers out of 721, or 20.8 per cent of that number, who are grad- 
uates of State normal only. 



151 









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152 

An inspection of this table shows that there is a straggling and rela- 
tively insignificant number of teachers who attended but did not graduate 
from high school. The largest number oi; teachers who have had some 
academic training and who attended institutions of the various classes but 
did not graduate are in the small schools. By studying the State as a 
whole, it is found that there is not a very large percentage of the teachers 
of the State who have this relatively incomplete academic training. Only 
3,5 per cent of the teachers of the State are graduates of high school only. 
It is clear that the smaller schools depend in .a larger measure upon the 
normal schools than the larger ones since they have a greater percentage 





Slit 


Per 
C«nt 




1^ 








to 

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201 
300 


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. 



Fig. 23.- — In the second vertical column the high schools are classified according 
to enrollment. In the second vertical is shown the percentage of college graduates 
In each group of schools based on the total number of teachers in the group. The 
horizontal bars represent percentages. The hollow bars represent the percentages 
in the city high schools, and the solid bars the percentages in the township high 
schools. 



of State normal schools on their faculties than the larger schools. The 
largest group in all the schools of all the graduates is represented by 
college graduates, and the percentage of college graduates increases with 
the size of the school. A fairly good proportion of the teachers of the 
State are graduates of college and normal school both. The group which 
has the largest proportion of teachers who are graduates of college and 
State normal school both in Class B. 

It will be noted by a further examination of the figures that the ex- 
tent of academic training increases with the size of the school. A fur- 
ther fact which comes out of these figures is that in every group the 
township high school teachers have had more academic training than the 
city high school teachers. It is possible by adding columns A and B to 
find out the total number of high school teachers in the State wlio are 
college graduates. Making this calculation for the totals we find that 
€8.1 per cent of all of the high school teachers in the State are college 
graduates. Of the teachers in the city high schools 64.3 per cent are 
college graduates, and 76.3 per cent of the teachers in the township high 



153 

schools are college graduates. By referring to Figure 23 these facts be- 
come more vivid. In setting up this graph columns and percentage 
columns A and B were added. The first column of figures in this graph 
is the size of the school, the second column is the percentage of totals in 
the respective groups who are college graduates. For example, in the^ 
city schools of Class A 52.1 per cent of the teachers are college grad- 
uates. In the township high schools of Class A 63.4 per cent are college 
graduates. The percentages of teachers who are college graduates in the 
city high schools are represented by hollow bars; in the township high 
schools they are represented by solid bars. The graph merely serves to 
emphasize the fact brought out by the tables, that is, that the township 
high schools have a larger proportion of college graduates than the city 
high schools. 

Some information bearing upon the subject of the training of the 
teachers in the high schools of the State was reported under Item 43 of 
the Approval Blank which provides spaces for reporting the degrees 
possessed by the teachers. This information is collated in Table L. 

In this table there is a vertical column showing the number of 
schools reporting on this section of the Approval Blank. A horizontal 
column shows the number of schools reported in this item, which is 399. 
a very large proportion of the schools in the State and sufficient to give 
reliable information. Another column reports the number of teachers 
involved in this study, which is 1,710. The middle portion of the table 
is devoted to a series of vertical columns for each of the more common 
degrees, A. B., A. M., etc. In the case of A. M. all of the teachers are 
reported in the same column whether the degree is written as A. M. or 
M. A., similarly all of the M. S. and Ph. M. At the right of the table 
is a column each for total degrees,, extra degrees, and blank degrees. By 
extra degrees is meant the degrees which are in addition to the bachelor's 
degrees. The column for blank degrees reports the number of cases 
where the space for this information was left blank. In reading the 
columns in this table horizontally we note that 135 teachers in city high 
schools of Class A have A. B. degrees; 28 have B. S. degrees, etc. In 
similar manner the whole table may be read. The percentages are cal- 
culated on the basis of the total degrees. For example, 135 or 74.'2 per 
cent of the total degrees (182) possessed by teachers in city high schools 
of Class A are A. B. degrees. 

We get an accurate idea of the situation in any group of schools by 
subtracting the extra degrees from the total degrees reported, and adding 
the blanks. For example, in the case of township high schools of Class 
A there are reported 56 degrees, subtracting 2 degrees and adding 48 
blanks we have 102, the number of teachers reported for this group. In 
one or two instances there are slight inaccuracies in this matter because 
of errors in tallying, but an examination of the table will show that these 
errors are so small as to be negligible. 

The information shown in this table corresponds rather accurately 
with that provided in the previous table. A number of the schools have 
not reported this information yet it is found that in the information 



154 





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155 

given 56.4 per cent of the teachers concerned have degrees of one sort 
or another. This is found by calculating the percentage of those 
possessing degrees on the basis of the number of teachers. Similarly it 
is to be noted that the township high school teachers have degrees in 
larger proportion than the city high school teachers, the exact percentages 
respectively being 63 and 53.4. 

In the case of city high schools a larger proportion of A. B. degrees 
are reported and in the case of township high schools a larger proportion 
of B. S. degrees are reported. The township high schools report a larger 
proportion of post graduate degrees. 

This matter of the training of high school teachers is the most 
vital problem in high school administration. In the report here dis- 
cussed concerning the academic training of teachers there is no informa- 
tion that bears directly upon their professional training. These tables 
have to do entirely with their academic training, but it is very clear that 
the better schools insist upon a more extensive academic training, that 
is, the larger schools do this and the township high schools do it. There 
will never be a satisfactory situation in the schools of the country until 
a thorough academic training is insisted upon in all of the schools. This 
thorough academic training must be followed up with a supplementary 
requirement of high degree in the matter of professional training. I 
know the objection at once will be raised that it is impossible for teachers 
to spend the large amount of time involved in a thorough academic course 
with a minimum requirement of the bachelor's degree, followed up with 
an expensive post graduate course dealing with the science of education, 
when the financial rewards are so meager. A section of this same chap- 
ter will show that the financial rewards are meager with certain excep- 
tions. However, it seems that the best way to secure adequate profes- 
sional standards and the commensurate financial remuneration is to 
begin by setting up standards of professional training without regard to 
the immediate financial reward. If the educators of the country, even 
at the expense of great personal sacrifice, will raise the educational and 
professional standards of the teachers, the time will inevitably come 
when teaching and school administration will be accorded its proper 
recognition as a profession, and the financial rewards are bound to follow 
such a policy. As I have said above, this is the most important problem 
to-day in the field of school administration, and it is one that needs clear 
thinking, and firm determination in the execution of any policy that may 
be formulated. 

Closely related to academic training in the preparation of a teacher 
is experience. Any amount of academic training is of no value unless it 
is supplemented by successful experience. The teacher must be tested in 
the class room before accepted as a part of the educational machinery of 
the State. A certain amount of experience may be set off as a part of 
the training, how much it is at present difficult to estimate. There is a 
feeling on the part of some educators that it is possible after a certain 
stage for a teacher to have so much experience as to be no longer very 
desirable. A statement is often made that a teacher has had long experi- 



156 

ence and, hence, is in a rut. There are certain movements going on 
educational lines at the present time which obviate this tendency. This 
movement is to give teachers adequate training during service. If this 
is accomplished in the most desirable way, the teacher will always be 
growing and increased experience will constantly be an added asset. 

The information collected in Item 43 of the Approval Blank fur- 
nished illuminating material on this topic. The question calls for the 
total number of years of teaching experience in the case of each teacher, 
the total high school experience and the total experience which the 
teacher has had in the high school where he is now employed. This 
information is tabulated in Table LI. 

This information pertains to 1,830 teachers. The number of teach- 
ers in each group is shown in the columns provided for that purpose. 
The number of teachers who have had one year's experience are shown in 
the proper vertical column marked "1," the number who have had two 
years in the vertical column marked "3,'' and so forth, on down to a 
point where a column is provided for those who had had over 20 
years. If we start to read this column we notice that of the 434 teachers 
working in the city high schools of Class A, 106 of them have had one 
years' experience, 90 have had t^o years' experience, and so on until 
we reach near the end of the horizontal column where we note that 6 
have taught over 20 years. 

At the right of each section of the table the median, the first quar- 
tile and the third quartile are calculated. This provides information of 
a very striking character. For example, the median experience for all 
of the teachers of the State is 4 years; 50 per cent of them teach from 
2 to 8 years. It is thus very clear that teaching is a temporary occu- 
pation which is engaged in for a few years and then laid aside for other 
work. 

If we examine the table carefully we shall see that the larger the 
school is the longer the teachers teach. For example, m Class E the 
median length of experience is 9 years, with 50 per cent of the teachers 
teaching from 7 to 15 years. In the smallest schools in Class A, for 
example, the median experience for the city high schools is 3 years, with 
50 per cent of the teachers teaching from 2 to 5 years. This is a very 
unfortunate situation for all of the schools and particularly for the 
small ones. It means that the schools are in a constant state of upheaval 
and readjustment because of the constant influx of new personalities in 
the teaching force. Teachers are no sooner acclimated than they are dis- 
missed or leave voluntarily. No commercial organization could exist 
efficiently under such a system. I think it is probably true that more of 
the defects of school systems are to be traced to this source than to any 
other. 

The middle section of the table is devoted to a compilation of the 
information provided regarding the high school experience of teachers. 
In the portion devoted to the total experience all of the experience of 
the teachers is included, whether this experience was secured in high 
schools or in other schools. In this middle section the tabulation applies 



157 



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160 

only to high school experience. The tabulation is made up exactly in the 
same way as the first part of the table. 

Here again we note the relatively large number of teachers who 
have had only a small high school exprience. For example, of the 1,830 
teachers comprised in this investigation 443 of them have had only one 
years' experience in high school. In the latter part of the middle section 
of the table it will be noted that the median number of years of experi- 
ence of instructors in Illinois in high schools is 3 years. Fifty per cent 
of the teachers of the high schools have had only 2 to 7 years of experi- 
ence in high school. Here again we note that the longer experience has 
been acquired by those in the larger schools. The difference in experi- 
ence between township high school teachers and city high school teachers 
is not very marked at this point. 

The third section of the table is devoted to a compilation of the 
information relating to the tenure of office of the teacher in the school 
in which he is now employed. The same tendency as was noted in the 
previous part of the table is shown here in a much more marked degree. 
Of the 1,830 teachers involved in this study 799 of them are teaching 
their first year in their present position. It is to be particularly noted 
that the median length of service in teachers in their present positions 
is 2 years, and that 50 per cent of them have held their present position 
from 1 to 4 years only. Here again the larger the school the longer the 
teachers have held their positions. There is no marked difference be- 
tween the township high schools and the city high schools in this respect. 

This latter part of the table is appalling in its significance. The 
previous part of the table has shown that the teachers remain in the 
business of teaching only a short time. The latter part of the table 
shows that those who do remain in the business of teaching flit from one 
position to another with great frequency. 

There is no problem in the administration of education that needs 
the attention which this problem requires. The State and the local 
districts should hesitate at no expense and no effort to change this sit- 
uation. It is impossible to take care of the enormous responsibilities 
laid upon schools in developing the youth of the country without a change 
in this respect. Financial rewards and standards should be so set that 
teachers could look forward to their work in education as a life career 
which would demand all of their enthusiasm and energy. These induce- 
ments should be so strong as to Justify them in making adequate academic 
and professional preparation. INTot only should they be encouraged but 
the school systems of the State should be so organized that the smaller 
schools should not suffer as they do. A teacher should be able to find a 
career almost anywhere, in small schools as well as in large ones. In no 
other way can the vital interests of the children be conserved. 

The information shown in the preceding table is reinforced by the 
information reported under Item 19 of Form 2. This information is 
tabulated in Table LII. 

The information in this table is set up with the side heads and the 
top heads reversed from the plan used in the preceding table. The table 



161 



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163 

provides information rrom 455 school systems and from 8,146 teacliers. 
This includes both the elementary and the high school teachers. Of the 
8,146 teachers 8,120 are teaching- for their first year, that is 26 per cent 
of the teachers of the State are teaching their first year. There is a 
larger percentage than in the preceding table of teachers who have had 
20 or more years of experience, that is, 7.57 per cent. This table con- 
tributes no new information to our study but is included as a verification 
of the previous part of the study. It will be noticed in this table also 
that the larger the high school the longer the experience of the teachers. 
It will be noted in this table that the experience of the township high 
school teachers is shorter than that reported for the city teachers, but 
the teachers reported under the city high schools include all the teachers 
in the system, both elementary and secondary. The previous table 
showed that the length of service of township high school teachers and 
city high school teachers was the same, hence, we can readily infer from 
this table that elementary school teachers remain in their positions 
longer than high school teachers. 

Under Item 43 of the Approval Blank information was reported on 
the amount of work performed by teachers. This information is tab- 
ulated in Table LIII. 

In this table there is a column for the number of schools which re- 
port on this section, which is 412. The number of schools reporting this 
item is 307. The total number of teachers involved in this part of the 
study is 1,801. 

The table shows the number of classes taught daily. In the proper 
columns are tabulated the nnmber of teachers teaching a certain num- 
ber of classes daily, as for example, the number and percentage of teach- 
ers who teach 4 classes daily, and so forth. It will be noted that the 
small high schools tend to teach 6 classes daily whereas the large high 
schools tend to teach 5 daily. The influence of the jSTorth Central Asso- 
ciation of Colleges and Secondary Schools is noted here, since the asso- 
ciation requires that the teacher shall teach not more than six classes 
per day and recommends a limit of five. 

In examining Class A it will be noted that a relatively large per cent 
of the teachers teach 5 classes or less. Examining the situation as a 
whole, we note that 39 per cent of the teachers of the State teach 5 
periods per day and 35.6 per cent teach 6 periods per day. Comparing 
the city high schools and the to\vnship high schools, it is noted that the 
larger proportion of the township high school instructors teach 5 periods 
per day or less. 

As to the number of subjects taught daily, the information pro- 
vided on this blank was grouped. English is tabulated as one subject. 
History, whether Ancient, Medieval and Modern or American, is grouped 
as one subject. Civics and Economics are grouped with the History. 
Science is grouped as a single subject. Therefore, the subjects under 
which this tabulation is made are as follows : English, Mathematics, 
Language, History, Science, Vocational Subjects. The information is 
shown in Table LIV. 

The number of teachers involved in this study is 1,808. It is clear 
tliat the smaller schools require their teachers to teach a larger range 



164 



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166 

of subjects and that the tendency in the larger schools is to keep them 
teaching a single group of subjects. In every case the township high 
schools provide facilities so that their teachers teach the smaller number 
of subjects, usually one subject. 

We now come to that part of our chapter which deals with the 
provisions which the schools make for teaching, and the first topic to be 
discussed is the number of teaching ^jositions in the schools of the 
various sizes. This information was reported under Item 11 of Form 
2 and is tabulated in Table LV. 

School authorities often wish to know whether or not their local 
practice conforms with that of other schools of their own size and rank. 
Table LY gives this information based upon the reports from 449 schools 
and involving 2,828 teachers. The table shows the number of teaching 
positions held in the various institutions by men, the number of teaching 
positions held by Avomen, and the total number of teaching positions. It 
displays the number of schools having 1 teacher, 2 teachers, 3 teachers, 
etc., occupied by men, in the appropriate columns. For example, read- 
ing down the column headed city high school Class B we note that there 
are 15 schools having one position occupied by a man, 32 having two 
positions occupied by men, 14 having three positions occupied by men, 
etc. The table may be similarly read throughout. It gives the same 
information for women, and also at an appropriate point in the table the 
same information regarding the total number of teaching positions in 
each one of these three categories, that is, for men, women and total. 
The median, the first quartile and the third quartile are calculated and 
shown at the proper points in the table. 

On reading this table further we note that in the city high schools 
of Class A there are 183 schools that have only one position occupied by 
a man. There are 84 schools that have one position occupied by a 
woman, and there are 29 schools all told that have only one teaching 
position. This part of the table shows that there are a relatively large 
number of schools in the State who are trying to conduct four-year 
courses with a very meager teaching force. 

Examining that part of the table which refers to men and women, a 
fruitful comparison can be made. Examining Class D, we notice that 
the median number of men in the city high schools is 6 and the median 
number of women is 9. In the township high schools we no"te that the 
median number of men is 8 and the median number of women is 11. 
By making a similar comparison throughout the table we note that the 
township high schools surpass the city high schools in the number of men 
employed. Calculating the total we find that the proportion of men 
employed in the high schools is 40.6 per cent. This is a much larger 
proportion than is sometimes realized. Jndividual schools vary greatly 
in this respect. Probably the best policy all around is for a high school 
to aim to have an equal proportion of men and women. 

School authorities wishing to know what is the practice of schools of 
their own size and standard in the matter of the number of teaching 
positions provided can secure this information in the latter part of this 
table. For example, in Class D the median number of teaching positions 



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170 

in the township high schools is 18; the middle 50 per cent of the schools 
of this class have from 16 to 22 teaching- positions. Now a local situa- 
tion ma}^ demand more teaching positions even than the third quartile 
indicates. This must be determined not only upon the basis of the prac- 
tice of other schools but upon a consideration of conditions within the 
local school. If it is desired that the local school extend its course of 
study and provide a wide range of electives, this means a larger number 
of teaching positions. If the school wishes to confine itself to a rather 
conventional course with narrow opportunities for electives, it can do so 
with a relatively small number of teachers. However, the trend in edu- 
cation is all for providing the widest opportunity for pupils in the way 
of a broad choice of electives. 

The practice of the schools in the matter of the distribution of sal- 
aries between the men and the women is sho'wn in Table LYI. 

This table is compiled from information reported under Item 13 of 
Form 2. This table shows the average expenditure for the employment 
of men teachers and M'omen teachers in the different groups of schools. 
It also shows the medians, the first quartiles and the third quartiles. In 
addition to this there is a column which shows the percentage of the sal- 
ary appropriation which is paid to men and the proportion which is paid 
to women. 

An examination of the table in detail will give the information for 
city high schools and township high schools of any size. The total shows 
that 49.6 per cent of the total money appropriated for salaries is paid to 
women. Comparing this table with the preceding one in which 40.6 per 
cent of the teaching positions are occupied by men, since an almost equal 
amount of money is paid to men and women, the fact which is generally 
known without statistical calculation is reinforced, namely, that larger 
salaries are paid to men than to women. 

In the early part of this chapter the point was made with emphasis 
that one of the important considerations in lengthening the tenure of 
office of teachers and encouraging them to remain in the profession is 
adequate provision with reference to salary. The practice of the high 
schools of the State in this particular was reported in Item 29 of Form 
2. This information was collated in Table LVII. The situation in 
this table is shown graphically in Figure 24. The salaries are divided 
into groups, $200 to $299, $300 to $399, and so forth. The number of 
teachers in each salary group is placed opposite that group in the proper 
column as regards the size and kind of school in which they teach. There 
are 455 schools involved in this investigation, and 2,821 teachers. 

It will be noted that in every case the township high school pays a 
higher salary than the city high school. The median salary in the city 
high schools of Class B is $774; the median salary in the township high 
schools of this group is $819, and so on throughout the table. Another 
example shows "that in Class D the median salary for the township high 
school teachers is $1,127; the middle 50 per cent of the teachers in this 
class of schools receive from $945 to $1,362. The median salary in all 
the high schools is $886, and the middle 50 per cent receives from $692 
to $1,150. 



171 



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173 

It is very clear that with meager salaries of this kind teachers can- 
not be expected to make the wide preparation which the importance of 
their work demands. School authorities in deciding upon their salary 
schedule can best learn the best practices of schools of their size and rank 
by giving attention to the salary range from the median to the third 
quartile. It is no credit to an institution to undertake to pay lower 
salaries than others of its group. It should rather seek to become a part 
of the progressive section of its group, raising the salary. If it pays a 
salary between the median and the third quartile, it will be imitating the 
example of the most progressive portion of that group, and if it can af- 
ford to, it ought to set the pace by going beyond the third quartile. 



Fig. 24. — Salaries of teachers. The 
high schools are classified at the bottom 
according to the number enrolled. The 
upright bars represent the range of sal- 
aries from the first quartile to the third 
quartile. The hollow bars represent the 
city high schools and the solid bars the 
township high schols. M represents the 
median salary in each case. An equalized 
scale of salaries is shown at the left and 
a scale of medians at the right. 




In order to determine the relative position of the lownship high 
schools as compared with all of the high schools of the Middle \Yest in- 
formation provided in the preliminary tabulations of Mr. Counts was 
collected, and is here shown in Table LYIII. 

TABLE LVIII— MEDI.^N SALARIES OF TEACHERS— (NORTH CENTRAL BLANK). 



North Central 

II Imois outside of Chicago 
Township High School. . . 



A 


B 


C 


D 


E 


F 


817 


■774 


813 


875 


1,145 


1,327 


881 


803 


907 


1,004 


1,005 


1,244 


679 


849 


961 


1,086 


1,437 


1,381 



Total. 



916 

998 

1,088 



174 

Three classes of schools are shown here. First, all of the schools of 
the North Central Association, involving about 1,000; all of the high 
schools in the State outside of Chicago, 150 in number; and the township 
high schools of Illinois who are on the accredited list, in number 39. 

The medians for these groups of schools are shown. In every group 
it is noted that Illinois high schools pay larger salaries than the North 
Central Association schools, and the township high schools pay larger 
salaries than the other schools of Illinois. 

Certain very definite conclusions may be drawn from the facts so 
far submitted in this chapter. In the first place, the larger the school 
the greater the academic training of the teachers employed in it. The 
township high school teachers acquire greater academic training than the 
city high school teachers. The most striking fact shown in this chapter 
is the relatively short experience of the high school teachers of the State 
and corollary to that the exceedingly short time the teachers spend in 
one position. It was found that the median length of the total experi- 
ence of the teachers in the State is four years. It was also found that 
the median length of high school experience of the teachers of the State 
is 3 years. It was found that the median length of time a teacher spends 
in a given position is 2 years. It was also found that the elementary 
teachers in the State have a longer experience and a longer tenure of 
office than the high school teachers. The teachers in the larger schools 
teach a smaller number of periods per day and a smaller number of sub- 
jects than the teachers in the smaller schools. The township high school 
teachers teach a smaller number of classes per day and a smaller number 
of subjects than the city high school teachers. 

As to the relation existing betAveen the number of men and women 
as instructors in the high schools of the State, it is found that there are 
more women than men. A little over 40 per cent of the teaching posi- 
tions in the State are occupied by men. The male teachers of the State 
receive almost as much money, however, as the women, thus showing 
that the salaries of the men are superior to those of the women. It 
was also shown that the salaries paid the township high school teachers 
are greater than the salaries paid to the city high school teachers. It 
was also shown that the salaries paid to the township high school teachers 
are greater than those paid to the teachers of the North Central Asso- 
ciation as a whole, and also superior to the salaries paid to the teachers 
of Illinois high schools.. 



no 



CHAPTER VIII. 



THE STUDE^^T BODY. 

The next important oroiip which engages onr attention in the study 
of the personnel of the high school is the student body. Keference has 
already been made in Chapter I to the enrollment, and Table I was ex- 
hibited for the purpose of showing the method of this investigation. 
Table I is here repeated as Table LIX in order that the information in 
this chapter may be complete. 

As was noted in the preliminary discussion of this table, the en- 
rollment in each of the classes is slightly higher in the case of the town- 
ship high schools than in the case of the city high schools, with the 
exception of Class C, in which the city high school enrollment is larger. 

The information shown in Table LX is shown with finer subdivi- 
sions than in Table LIX. The groups are 1 to 10, 11 to 20, and so forth. 

The facts given in this table are shown graphically in Figure 25. 
They are commented on in the discussion of Table I in Chapter I. 

It will be noticed here that there are a number of very small schools. 
Eor example, there are 37 city high schools of Class A which have an 
enrollment of only 21 to 30; there are 50 of them having an enrollment 
of only 41 to 50. There are 9 township high schools having an enroll- 
ment of onlv 31 to 40. and 4 township high schools havins: an enrollment 
of 41 to 50'. 

In recent investigations it has been common to base all sorts of 
comparisons upon the median enrollments of schools of various sizes. 
Perhaps this is justifiable because of the fact that although a student may 
remain in the school for only a short time, the organization must nec- 
essarily be adjusted to him, and he is an expensive factor that must be 
taken care of in the school. 

In Table LXI information is given regarding average attendance. 

The sizes and kinds of schools are shown at the side of the table. 
They are again classified as to enrollment at the top of the table. Bead- 
ing the table, we note that there are 252 city high schools of Class A and 
44 township high schools that have an average daily attendance of 1 to 
100, and so on throughout the table. 

The average attendance is found by dividing the whole number of 
days of attendance by the number of days school is in session. An ex- 
amination of the table will show that the same relative condition exists 
in the matter of average attendance as in the case of enrollment dis- 
cussed in the preceding tables. In each case except in Class C the aver- 
age daily attendance is higher in the case of the township high schools 
than in the city high schools. The quartile deviation is larger in the 
case of the township high schools than in the case of the city high schools 



176 





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Fig. 25. — Enrollment. The high schools 
are classified according to the number 
enrolled. The upright bars represent the 
range of enrollment from the first quar- 
tile to the third quartile. The hollow bars 
represent the city high schools and the 
solid bars the township high schools. M 
represents the median enrollment in each 
case. An equalized scale of enrollment 
is shown at the left and a scale of me- 
dians at the right. 



179 



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180 

except in Class A. This deviation indicates that there probably is a 
little greater irregularity in the ease of the township than in the case of 
the city high schools. 

In Item 14 of Form 2 the total days' attendance of all the pupils 
enrolled was reported. This information is tabulated in Table LXII. 

The schools are classed at the side and the total days' attendance 
is grouped at the top. Heading the table, we note that in 130 city high 
schools of Class A the total days' attendance is 5,000 to 10,000; in 61 
city high schools of Class A the total days' attendance is 10,000 to 15,000. 
It will be noted by examining the medians that here without question 
the number of days of attendance in the case of the township high 
schools is larger than the number of days of attendance in the city high 
schools. It should be said in this connection that the total days' attend- 
ance is probably the best basis on which to make comparisons between 
different systems of schools, as this attendance is the same in different 
institutions no matter what the size. The difficulty with total enrollment 
is that the different schools vary considerably in this respect throughout 
the year. The uncertain factor in the average daily attendance is that 
sometimes reporting officers calculate it in a little different fashion, but 
if the total days' attendance is reported there is very little chance for 
inaccuracy. Throughout the present investigation, however, it was not 
possible to do this because the investigation had reached fair completion 
before this item was tabulated and made available. However, if later 
investigation should start with the formulation of this table, it would be 
comparatively easy to carry it out along the lines suggested. 

It was noted above that the total days' attendance depended some- 
what upon the length of the school term. Information on the length of 
the school term was reported in Item 3 of Form 2, and is tabulated in 
Table LXIII. 

In this table the number of schools is reported in the first horizontal 
column below the classification of schools. Then there is a column for 
less than 160 days, a column for 160 days, 161 days, and so on until we 
come to a column Avhich calls for the information in those schools having 
a term of over 200 days in length. 

In the lower part of the table the average, the median, the first 
quartile, the third quartile, and the quartile deviation are shown. By 
consulting the medians it will be seen that in every case except Class B 
and Class B the township high schools have longer terms. The difference, 
however, between the township high schools and the city high schools in 
this respect is not very great, hardly enough to be of sufficient importance 
to predicate any conclusions as to the effect of the length of the school 
term upon the efficiency of the school. 

The matter of the amount of time spent by the recitations of various 
classes upon their work is an important one. There is a tendency in 
educational circles at the present time to lengthen the school year and to 
lengthen the school day, as well as to lengthen the recitation periods. 



181 



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184 

In order that this may be done intelligently an investigation reaching a 
wide area needs to be made covering not only the practice of the various 
institutions in this respect but also investigating the efficiency of schools 
which actually increases the length of time spent. We probably have 
enough information to give us adequate data for conclusions as to the 
present practice in this respect. The information at hand shows that 
schools of a given size and standard have nearly the same custom in this 
respect. 

In order to compare the schools at present under consideration in 
this investigation with others the information based on the preliminary 
tabulations made by Mr. Counts in his study of the North Central Asso- 
ciation was tabulated. This tabvilation is shown in Table LXIV, 



TABLE LXIV— TIME UNITS— (NORTH CENTRAL BLANK). 





North Central. 


Illmois. 


Twp. H. S. 




Median. 


Quartile 
Range. 


Median. 


Quartile 
Range. 


Median. 


Quartile 
Range. 


Number of weeks of 5 days eacii 

Number of recitations in daily program- 
Number of 60 minute hours in daily pro- 
grams 

Number of minutes in recitation periods 


38 

7 

43 


36-39 

7-8 

5-5i 
40-45 


36 

7 

5i 
42 


36-38 

7-7 

40-45 


38 
7 

5i 


37-39 
6-8 

5i-5i 
40-43 



This table covers first the number of weeks of 5 days each, the num- 
ber of recitations in the daily program, the number of 60-ininute hours 
in the daily program, and the number of minutes in the recitation 
periods. It is a comparison, between the practice in the North Central 
Association, the schools of Illinois, and the township high schools of Illi- 
nois. In each group of schools the median and the quartile range is cal- 
culated. The quartile range indicates the practice of the middle 50 per 
cent of the group. For example, in the case of the North Central Asso- 
ciation the quartile range is indicated as 36 to 38, which means that the 
first quartile is 36 and the third quartile is 39, that is, the number of 
weeks in this group of schools in the school term is 36 to 39. 

(Comparing the schools in detail it is noted that the median length 
of school term in the North Central Association is 38 weeks^ for the 
schools of Illinois 36 weeks, and for the township high schools 38 weeks. 
The median number of recitations per week is the same in each case, 
namely, 7. The number of 60-miDute hours is practically the same, 
being either 514 or 51/2. There is no important difference in the prac- 
tice of these schools in the number of minutes in the recitation period. 
The number of minutes is either 43, 43 1^ or 43. This table shows the 
remarkable uniformity existing in the North Central territory in all 
classes and grades of schools. 

In the preceding paragraphs we have been discussing the personnel 
of the school as a whole with very little attention to the constitution 
of the student body. This latter matter will now engage us for a consid- 
erable part of the remainder of the chapter. 



185 

Under Item 8 of Form 2 information regarding tuition pupils in the 
high schools of the State was reported, and this information is tabulated 
in Table LXV. 

The tuition pupils are arranged in the group at the top as follows : 
1-10, 11-20, 21-30, etc. The number of schools having a given number 
group of tuition pupils is placed before in the appropriate vertical column 
opposite the size and kind of school to which the given group belongs. 

It will be noted that in each class of schools the township high 
schools have a smaller number of tuition pupils than the city high 
schools. For example, in Class D the median number of tuition pupils 
in city high schools is 59, and in 50 per cent of the schools the range of 
tuition pupils is from 35 to 82 ; whereas in the case of township high 
schools the median number is 37, and 50 per cent of the schools of this 
group have from 25 to 53 tuition students. This is indicative of two 
things. First, that the township high schools with their wider range of 
territory more nearly supply the needs of prospective high school students 
in the vicinity in which they are located. In other words, the pupils who 
naturally belong to these schools are in actual attendance and their 
places of residence are included in the district. In the city high schools 
there are a large number of students coming from outside of the district 
who really belong within the school sphere so to speak of the high school 
in question. Undoubtedly there are many other prospective high school 
students in the neighborhood of city high schools who would be brought 
into the city high schools if the immediate environs of that high school 
which naturally belonged in the high school district were actually in- 
cluded in the high school district. Here is need for very definite legis- 
lation. A large number of prospective high school students in the State 
do not enjoy high school advantages, who have a high school near enough 
to be available to them but the organization of the high school districts 
does not permit it. It seems unfortunate that this condition is allowed 
to continue. There are, of course, certain territories in the State of 
Illinois where at present there is no high school within reach of pros- 
pective high school students. In such cases wherever it is possible to do 
so high schools should be organized and high school districts set up. But 
we have revealed in this study a condition which is known to many edu- 
cators in the State, namely, that pupils who properly belong to a certain 
high school are not included in the high school district. It is true that 
the legislative difSculties in the way of making provision for this are 
severe, yet by a proper study of the matter it would seem that these 
obstacles might be overcome. 

The distribution of the pupils throughout the various classes in the- 
high school was reported in Item 2 of Form 2. This information is tab- 
ulated in Table LXVI. 



186 



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187 



TABLE LXVI— DISTRIBUTION OF THE ENROLLMENT IN ILLINOIS IN THE FOUR 
HIGH SCHOOL YEARS— (FORM 2, NO. 2). 



Xi a 




9 




10 


No. 


Per 

cent. 


No. 


Pe 
ceot. 



No. 



Per 
cent. 



No. 



Per 
cent. 



Total. 



A 

1-100 



B 

101-200 



C 
201-300 



D 

301-500 



501-Over 



CityH.S 

Twp. H. S 

Total 

CityH.S 

Twp.H. S 

Total 

CityH.S 

Twp. H.S 

Total 

CityH.S 

Twp. H.S 

Total 

CityH.S 

Twp.H. S 

Total 

Total City H. S. 
Total Twp. H. S 

Grand total. 



24 



24 



19 



454 



4,909 
1,040 



5,949 



3,522 
1,321 



4,843 



1,131 
1,320 



2,451 



1,529 
2,002 



38.3 
41.1 



38.7 



38.3 
42.4 



43.1 
42.8 



42.9 



38.4 
41.6 



3,531, 40.2 



5,251 
1,250 



39, 
39.5 



6,501 



16,342 
6,933 



23,275 



39. 



39.1 
41.5 



39. 



3,242 
605 



3,847 

2,291 

776 



3,067 

613 
790 



1,403 

1,011 
1.157 



2,168 

3,512 
836 



4,348 



10,669 
4,164 



14,833 



25.3 
23.9 



25 



24.9 
24.9 



24.9 



23.3 
25.6 



24.6 



25.4 
24.1 



26.6 
26.4 



25.5 
24.9 



25.3 



2,691| 
531, 



3,222 

1,892 
570 



2,462 

474 
561 



1,035 

777 
885 



1,662 

2,453 
525 



2,978 

8,287 
3,072 



11,359 



20.6 
18.3 



29 



18.1 
1&2 



18.1 



19.5 

18.4 



1,990 
356 



2,346 

1,482 
452 



408 
416 



18.9 



18.6 
16.6 



663 
765 



15.5 
14.1 



16.1 
14.5 



15.5 
13.5 



12.832 
2,582 



15,364 

9,187 
3,119 



12,306 



2,626 
3,087 



16.7 
15.9 



1,428 

1,965 
552 



18.2 2,517 



19.8 
18.3 



19.4 



6,508 
2,541 



9.049 



16.1 



14.9 
17.5 



15.6 
15.2 



5,713 



3,980 
4,809 



8,789 

13,181 
3,163 



6,344 

41,806 
16,710 



58,. 516 



This table shows the number and percentage of students in each of 
the four years in high school in the various groups. The remarkable 
fact coming out of this table is that the proportion of students in the 
various classes is remarkably uniform throughout the table. 

It will be seen, taking the State as a whole, that 39.8 per cent of the 
students in the high schools are in the first year class, 25.3 per cent are 
in the second year class, 19.4 per cent are in the third year class, and 
15.5 per cent are in the fourth year class. 

It will be noted also in inspecting the totals that the township high 
schools have a larger proportion of their pupils in the first year than the 
city high schools. Although the difference is not a large one, it would 
seem that the reason for this is the fact that a good many of the town- 
ship high school students live some distance away from the high school 
building, and that this fact has somewhat of a bearing upon their attend- 
ance. 

It is interesting to compare this information with other informa- 
tion collected from the reports of the N'orth Central Association in 1913. 
This information for 1913 is tabulated in Table LXYII. 



188 



TABLE LXVII— DISTRIBUTION OF THE ENROLLMENT IN THE NORTH CENTRAL 
ASSOCIATION IN THE FOUR HIGH SCHOOL YEARS— (NORTH CENTRAL BLANK). 



North 
Central. 



Illinois. 



Twp. H. S. 



Per cent in fourth year. 
Per cent in third year . . 
Per cent in second year 
Per cent in first year . . . 



15.9 
19.5 
26.5 
38.1 



15.2 
18.4 
27.2 
39.2 



15.9 
20.1 
26.7 
37 1 



It shows the percentage of students in each of the four years in the 
case of the North Central Association schools, the Illinois high schools, 
and the township high schools. Eeports in this table, however, include 
only those schools which are accredited by the North Central Association. 
As would be expected, the proportion of people in the first year in this 
group of high schools is smaller than in the high school investigated by 
the present study. It will be noted that in Table LXI the information 
covers 454 schools. A large number of them are accredited neither by 
the North Central Association nor by any college. 

As a part of this distribution of students throughout the four years 
it is interesting to note the situation regarding graduates. This item 
was reported in Item 7 of Form 2 and is tabulated in Table LXVIII. 

The number of graduates is grouped to the top as 1-4, 5-9, 10-14, 
etc. The number of schools having graduates to the number indicated by 
the groups is placed below the number groups. For example, reading 
the horizontal column head City High Schools, Class A, we note that 70 
schools had 1-4 graduates, 106 schools had 5-9, 50 schools had 10-14, 
and so forth. In similar manner the entire table may be read. 

As is natural, the number of graduates increases with the size of 
the school. It will be noted, however, that in every case except Class E 
the number of graduates in the case of the township high schools is smaller 
than in the city high schools. This conclusion is based upon a considera- 
tion of the medians shown and a study of the practice of the middle 50 
per cent of the schools. For example, in considering Class D it will be 
noted that the median number of graduates for city high schools of this 
size is 49. The middle 50 per cent of the schools of this size graduate 
from 44 to 65. On the other hand, the median number of graduates 
of township high schools of Class D is 46. The middle 50 per cent of 
the schools graduate from 39 to 58. It should be said in this connection 
that this information applies to the graduates of 1915. It should also 
be said in this connection that a school can get some idea as to whether or 
not it has the normal number of graduates by a study of this table. It 
can readily determine whether its number of graduates is near the 
median of the schools of its size and standing. If its number of grad- 
uates rather constantly is between the median and the third quartile, 
it is very certain that the conditions in the school ar-e satisfactory as to 
the number of students who are passing through the school successfully. 

Occasionally throughout this study it has been interesting to check 
information from other quarters. Tables have been constructed which 
have not been included in this study, hence, their only value has been to 



189 



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1,370 
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190 



check the information which is tabulated and herein published. In this 
connection Table LXIX is presented. 



TABLE LXIX— HIGH SCHOOL GRADUATES OF THE YEAR 1915— (SPECIAL REPORT). 





A 1 
1-100 


B 

101-200 


C 
201-300 


D 

301-500 


E 
501-Over. 


Total. 


Total schools 


39 

14 

16 

8 

1 


24 
1 


14 


12 


4 


93 


Graduates— 

1-4 


15 


5-9 


1 






17 


10-14 


6 
6 
5 
5 


1 




15 


15-19 


1 

1 
4 
1 
5 

1 




8 


20-24 






6 


25-29. ... 








9 


30-34 








1 


3.5-39. . 






3 

1 
2 

1 
1 
1 




8 


40-44 




1 




3 


45-49 






2 


50-54 










1 


55-59 










1 


60-64 










1 


65-69 












70-74 








i 




1 


75-79 












80-84 








1 




1 


85-89 








1 


1 


90-94 












95-99 














100-Over 










3 


3 














Total 


39 
6 
6 
3 
9 
3 


24 
18 

m 

14 

26 

6 


14 

30 

30§ 

24i 

38i 


12 

48 
46 
39 
76 
18i 


4 
119 
118i 
95 


93 


Average 




Median 




First Quartile 




Third Quartile 

















In order to get information of a certain type in one of the circulars 
sent out from the State Superintendent's office in the spring of 1916, a 
report was made concerning the number of graduates for 1915. 

These were voluntary reports and did not cover the entire field. It 
did cover, however, the condition in 93 township high schools. The grad- 
uates of 1915, based on this report are shown in this Table LXIX. An 
examination of the medians here shown indicates that the medians found 
here are almost the same as in Table LXIII. The corroboration of the 
two tables is very interesting. This table is included for comparative 
purposes and has no other value. 

An important consideration in studying the student body of the high 
school is to learn the extent of the population in the district under 21. 
This information was given under Item 1 of Form 2, and is tabulated 
in Table LXX. 

We have here an opportunity to find out the number of people in the 
various districts under 21 years of age and the proportion of this possible 
school population which is in actual attendance in the high school. 

Eeading this table from top to bottom, we find that there are 13 city 
high schools of Class A in districts where there are less than 100 children 
under 21 years of age. There are 71 in districts having from 101 to 
200 and so on. Examining the medians we notice that, for example, in 
Class D in the case of city high schools there are 2,789 children less 
than 21 years of age. In the case of township high schools of this group 



191 



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193 

there are 2,857 children less than 31 years of age. In the case of cit}' 
high schools in Class D the middle 50 per cent of the high school dis- 
tricts have from 3,406 to 4,695 children less than 31. The middle 50 
per cent of the high schools of this size have in their districts from 1.633 
to 4,187 children less than 31. In other words, in order to support a 
high school of from 300 to 500 pupils in the State of Illinois there are 
likely to be in the district in the neighborhood of 3,000 children under 21. 

Further inspection of the table shows that in every case there is a 
larger number of children under 31 in the township high school districts 
than in the city high school districts. This, of course, means that there 
is a smaller proportion of the students going to high school in the town- 
ship high school districts than in the city high school districts. 

In the light of information that is to be brought out later in this 
study it is certain that this is due to the fact that the township high school 
districts cover a wider territory than the city high school districts, that 
the population is not so centralized as in the case of the city high scliools, 
and that a practical means of obviating this difficulty is transportation. 
It will be found later but should be emphasized here that one of the most 
important needs in the educational development of the State is a provi- 
sion by law not only permitting but requiring school authorities to trans- 
port, free of charge, those students in the high school districts who are 
not within easy walking distance of the building. An examination of the 
quartile deviations shows a wide range in the number of people who are 
of school age in the various groups. While, of course, this table shows 
all the children under 31, yet children of school age would almost cer- 
tainly show a like variation. This wide variation indicates that the 
communities of the State have not completely settled down into a uniform 
practice of sending their children to high school, some communities 
sending a large proportion and other sending a small proportion of their 
children. 

Nevertheless the uniformity is sufficiently established so that within 
limits it is possible to predicate a high school of a given size if there are 
a certain number of children under 21. For example, in township high 
schools of Class C the median number of children is 2,457. That is, 
reading it the reverse way, if there are 2,457 minors in a township dis- 
trict, the chances are even that it has a high school varying in enrollment 
from 201 to 300. If we note the first and third quartiles, we find that 
the middle 50 per cent of township high schools of this size have an 
underlying population of minors of from 1,522 to 3,014. 

It is then perfectly feasible in laying out new township high school 
districts to include a population sufficiently large to make possible a 
high school of a certain size. In the example noted above, if from 
1,522 to 3,014 minors are included, it is reasonably probable that the 
high school will enroll from 200 to 300 students. Fifty per cent of the 
schools in present practice actually realize this enrollment. Twenty- 
five per cent of the cases will enroll less than 200, and 25 per cent more 
than 300. Consequently, this information can be used in a practicable 
way in establishing high schools where it is the purpose to include a 
population sufficiently large to insure a high school large enough to be 
efficient. 



193 

Corollary to this matter of the census is that of the elementary en- 
rollment, that is, that portion of the population under 21 which is in 
actual attendance. In this case in the elementary schools this informa- 
tion is reported in Item 2 of Form 2, and is tabulated in Table LXXT. 

This table is constructed like the preceding one. Heading it from 
right to left as in the preceding case, we notice that there are 46 districts 
having city high schools of Class A which show less than 100 enrolled 
in the elementary schools. There are 115 city districts of Class A hav- 
ing 101 to 200 in the elementary schools, and so on throughout the table. 
'Note that the total elementary enrollment in the districts covered bv the 
436 high schools is 266,088. 

Examining the latter part of the table it will be noted tluit in every 
case the elementary enrollment in the township high school districts 
underlying the township high schools is larger than the elementary en- 
rollment contributing to the city high schools. An examination of the 
medians and quartiles brings out this fact very clearly. The significance 
of this is that a smaller part of the elementary enrollment in the under- 
lying districts of the township high schools attend high school in propor- 
tion to the number that attend city high schools. This fact is in con- 
formity with that noted in connection with the previous table, and is 
accounted for in the same way, namely, that the township high schools 
include larger districts and thus it is more difficult for students to attend 
township high schools than city high schools. A note of caution is due 
here. It may be thought in connection with a statement of this kind 
that township high schools fail to draw students from elementary schools 
in the same way as city high schools. This is ndl true, because of the 
fact that if the township high schools were not in existence a large pro- 
portion of the people who arc actually attending would have no high 
school opportunities at all. This is borne out also by the fact that there 
are scores of communities in Illinois that have no high school advantages, 
and it is also supported by the fact previously shown in this chapter that 
the city high schools have a larger number of tuition pupils coming from 
the immediate vicinity from schools who have no high school advantages 
of their own, and if there were township high school districts covering 
these city districts, there would not be so many tuition students. 

In a way similar to that indicated in the discussion of the table on 
the school census, this table also provides information on expectancy con- 
cerning the size of the high school. For example, if a proposed district 
had from 804 to 1,506 elementary pupils in it, it would be reasonable to 
expect that district to develop a high school having an enrollment of 201 
to 300. This follows because 50 per cent of the township high schools 
of this group actually have from 804 to 1,506 elementary pupils in their 
districts. A similar calculation could be made for schools of any other 
size. 

A still further item of information along this same line is noted 
in connection with the information reported in Item 2 of Form 2, and 
is tabulated in Table LXXII. 

This table shows the number of peoijle in the eighth grade in the 
underlying districts of the township high schools and in the contributing 
—13 I H S 



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196 

elementary schools of the city high school districts. This table is con- 
structed in a manner exactly similar to the two preceding ones. 

Eeading this table from right to left, there are 63 city high schools 
of Class A in which the contributing elementary school has from 1 to 10 
in the eighth grade; 114 having from 11 to 20 in the eighth grade. The 
table is thus read thronghout. 

An examination of the latter part of the table shows that the num- 
ber in the eighth grade is larger in the case of the township high schools 
than in the city high schools in every instance with the exception of 
Classes C and D. For example, in Class B the elementary schools con- 
tributing to the city high schools show that there is a median of 36, anfl 
that the middle 50 per cent have 29 to 48 in their eighth grades. The 
median number of eighth grade pupils in the underlying districts of the 
township high schools of Class B is 47. The middle 50 per cent of these 
districts have from 29 to 55. The reason for this is explained in exactly 
the same way as in the previous table, namely, that the pupils involved 
live at a farther distance from the high school and hence are not as able 
to attend. 

In considering the information shown in this chapter, it is noted that 
there are a very large number of high schools involved which are small 
high schools. For example, there are 298 high schools which have an en- 
rollment of less than 100. One of the important needs in this connec- 
tion is to so distribute the districts of the State that these high schools 
will be increased in size so as to increase their efficiency. 

It was noted in particular that the average attendance corresponds 
to enrollment. It was also noted that in studies of this kind it would 
be better to take the total days attendance or the per diem attendance 
as a basis for calculations. It was also noted that the length of the 
school term was practically the same for all sizes ad classes of schools. 

Various features as to the time spent by the schools of the North 
Central Association, the schools of Illinois, and the township high schools 
were considered in separate tables, and it was found that as far as the 
number of weeks is concerned, the number of recitations in the daily 
program and the number of 60-minute periods, the amount of time spent 
in these various periods is practically the same in the township high 
schools and in the city high schools. There is a smaller number of 
tuition pupils in the township high schools than in the city high schools. 
This is due to the fact that the township high schools more completely 
cover the territory naturally tributary to them than do the city high 
schools. The township high schools have a larger proportion of their 
students in the first year class than the city high schools. Correspond- 
ingly they have a smaller number of pupils in their upper classes and 
ainong their graduates than the city high schools. This is due to the 
fact that pupils coming to these high schools come from a wider terri- 
tory and have not the same convenience of transportation. The town- 
ship high schools have a smaller proportion of the population under 21 
enrolled than city high schools. They also have a smaller proportion of 
the elementary enrollment than the city high schools. The township 
high school districts have a smaller proportion of eighth grade pupils 



197 

than city high schools. All three of these facts are due to the same cause 
as was mentioned above, namely, the relatively larger difficulty in trans- 
portation. 



198 



CHAPTER IX. 



EFFICIENCY OF HIGH SCHOOL GEADUATES IN" COLLEGE. 

Up to the present time we have been discussing the various factors 
that go into the education of high school students. No emphasis has 
been placed upon the subject of efficiency. There is no question but that 
the various factors heretofore discussed have a direct bearing upon the 
efficiency of high school students, excellence of the appointments in the 
building, provision for permanent equipment, expenditures for current 
supplies, the training and experience of executive officers and teachers, 
the elementary preparation of high school students, and the facilities of 
transportation. All of these factors must necessarily influence the effi- 
ciency of high school students. However, it cannot be assumed that the 
quantitative measurement of any of these factors gives a final measure 
of the efficiency of high school education. 

One of the most important problems in secondary education to-day 
is the measurement of such items as those mentioned above. No ade- 
quate standards in providing for these various influences in secondary 
education may be formulated until a research into their effects on the 
student body can be made. 

In some of the high school courses of study tests have been evolved 
and tentative standards set up. We are, however, at the very beginning 
of this evolution and it is not at present reliable enough to base con- 
clusions iipon, and in any case even if these tests had been available, no 
opportunity was presented in the present investigation to use them. 

The real test of a system of education is the permanent influence 
on the lives of the students that come under its influence. This is a 
difficult standard to apply. The closest approach we have to it so far as 
high school students are concerned is their careers in college. In a series 
of researches that have been conducted in recent years it has been found 
that high school students on the whole perform in college about as they 
do in high school in the matter of their efficiency in the college courses 
as shown by the college marks. For example, the great majority of 
students who are in the highest third of their graduating class in high 
school acquire and retain a position in the highest third in college. This 
is also true of the first and second thirds of the high school graduating 
classes when they go to college. There are, of course, exceptions to this 
in the case of a good student in high school for various reasons becoming 
a poor student in college and vice versa, but these are exceptional cases. 

In order that we might have the evidence which the university might 
afford in determining the relative efficiency of the various groups of high 
schools a study was made of the records of freshman students in the 
University of ' Illinois for the years 1911-12, 1912-13, 1913-14 and 



199 

1914-15. I am deeply indebted to Professor H. A. Hollister of the 
University of Illinois for providing me with transcripts of these records, 
which I have tabulated in this chapter. 

Before going into these marks in detail, however, I wish to examine 
the reports of the number of graduates who went from high schools of 
the various groups to higher institutions of learning. This was pro- 
vided under Item 61 of the Approval Blank. The question calls for the 
number of graduates of the high schools who are at present attending 
advanced institutions of learning. This information is tabulated in 
Table LXXIII. 

Of the 444 institutions reporting on this section of the Approval 
Blank only 84 failed to report on the item, so that this information covers 
the situation in 360 high schools in Illinois and is hence very complete. 
Beading the table from left to right, it will be seen that of the 193 
city high schools of Class A. 136 of them have from 1 to 9 graduates 
attending advanced institutions of learning; 50 of them have from 10 to 
19. In the same manner the table is read throughout. The median, the 
first quartile and the third quartile Avere calculated in each case. An in- 
spection of the table will show that there is no material difference in the 
number of graduates attending advanced institutions of learning in the 
case of township high schools as compared with city high schools. In 
fact, the total number of high school students attending from city high 
schools and- township high schools is exactly the same, that is, 13. It 
should be noted in this connection that these medians are not actual but 
are counted by the group method. The median number of city high 
school graduates in Class A is larger and there are exactly the seme 
number in this group for the township high schools. Attention sionld 
be called to the fact that as the size of the school increases not only 
does the number of graduates increase but this number increases rela- 
tively to the size of the school. That is, for example. Class D sends 
more than four times the nimiber of graduates to advanced institutions 
of learning than Class A does. The remarkable feature about this 
table is its regularity, that is, schools of a given size can' be expected to 
send about so many graduates to advanced institutions of learning. 

Eeturning again to the transcripts of freshmen records furnished 
from the University of Illinois, attention is called to the fact that in the 
present investigation there are 2,354 of these records studied, covering 
30,749 courses in the University. With so large a number of students 
and courses covering a period of four years it ought to be possible to 
reach rather definite conclusions. 

Upon examination of these transcripts it was found that a few were 
from high schools that could not be identified in the State. These were 
excluded from the study. The number mentioned above consists of 
those actually included in the study. Still further, in some of the records 
which were included in this study there were certain symbols used in 
the place of grades, and since it was not possible to compile them and in- 
dicate them in the tabulations it was decided to include them in a sep- 
arate tabulation so that we might have definite information covering the 
subject entirely. The symbofs used were as follows: Inc, WP, AB, 



200 



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201 

EX, D. Tn a letter dated April 27, 191<3, Professor Hollister very kindly 
interpreted these symbols as follows : 

WP — is merely an abbreviation used in the Registrar's office and 
means that the student has withdrawn from the subject with permission. 

Inc — Incomplete, probably requiring the submission of notebooks or 
of some other collateral work required. 

AB — Absent. Meaning that the final examination was not taken. 

EX — Excused, which means about the same thing. 

D — means dropped, which would mean that the student was dropped 
from the course from some irreguhirity or inefficiency. 

The use of these symbols was tabulated in Table LXXIV after the 
manner followed throughout this study. 

In the horizontal column marked "Xumber of Schools" the whole 
number of schools comprising this investigation are shown. In the 
horizontal column immediately below it the percentages of these schools 
are shown, that is, the percentage of Class A which are township high 
schools and the percentage which are city high schools. This is found 
by adding the number of township high schools and the number of city 
high schools together and finding the percentage each group is of the 
total. Similarly in the column marked "Total Symbols" the same pro- 
cedure is followed. For exampk'. the total symbols for the city high 
schools of Class A are added to the total symbols for the township high 
schools of Class A and the percentage which each group is of the total is 
calculated and set down in the appropriate column. Tlie purpose of this 
calculation is to determine the relation of the ratio of the symbols to the 
ratio of the schools. An examination of the two columns shows very 
definitely that the percentage of irregularities is fairly equivalent with 
that of the schools, except in the cases of Class C and Class D. in which 
the ratios do not at all coincide. On the basis of these facts we are 
justified in passing over the matter of irregularities and neglecting them 
in a consideration of the later tabulations. This is because, as stated 
above, there is fairly even calculation between the number of irregulari- 
ties and the number of schools in each group. 

The first form in which these transcribed records are tabulated is 
shown in Tables LXXY to LXXIX inclusive. Table LXXV exhibits 
the records for the year 1911-12, LXXA^I for 1912-13, LXXYII for 
1913-14 and LXXVill for 1914-15. All the information included in 
Tables LXXY to LXXYIII inclusive is recapitulated in Table LXXIX, 
that is. Table LXXIX comprises the records of all the 2,354 students 
and the 20,749 courses which they took. 

Table LXXIX is constructed so far as the distribution of the schools 
is concerned in exactly the same way as the preceding ones. The first 
horizontal column shows the number of schools involved. Xow it will 
be seen that there is quite a discrepancy between the number of schools 
shown here and the number shown in any one of the individual years 
given in the preceding table. For example, there are 298 city high 
schools of Class A shown in this table, whereas there are only 72 city 
high schools of Class A shown in Tal)le LXXY. This is due to the fact 
that in Table LXXIX the high schools are repeated, that is, in this 
column under discussion if a school had freshmen in each of the four 



202 



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205 

years under discussion it would be reported in this column as four high 
schools, whereas it would be reported as one high school in each of the 
preceding tables. 

The second horizontal column represents the whole number of 
students taking courses in the University under the various groups and 
classes. The horizontal column immediately below it is the number 
failing in one or more courses. The fourth horizontal column reading 
down is the percentage of students failing in one or more courses. This 
is the percentage of the third column based upon the second column. For 
example, in the city high schools of Class A there are 527 taking courses 
in the University. Of these 215 failed, that is, 215 is 40.79 per cent 
of 527. Keading this column we note that 40.79 per cent of graduates 
of city high schools of Class A failed in the freshman year during these 
four years. In the townshij) high schools 'M)M per cent failed during 
this period of four years, and so on throughout tlie table. 



Size 
School 



Per 
cent 



1 to 
loo 



40 79 
36 i6 



■40 97 
3846 



201 
300 



3692 
33 33 



301 
50O 



38.79 
33.33 



3379 
41. 5S 



lOOl 
Over 



36.54 
18.00 



Total 



38 lO 

34.53 



Fig. J6. — High School graduates failing in one or more courses at the Uni- 
versity of Illinois. In the first vertical column the high schools are classified 
according to enrollment. In the second veitical column is shown the percentage 
of high school graduates from each group of schools failing in one or more courses 
in the freshman class in the University based on the total number of graduates 
in the University from that group of schools. The horizontal bars represent these 
percentages. The hollow bars represent the percentages of graduates from the 
city high schools and the solid bars the percentages of graduates from the town- 
ship high schools. 

There is a column here marked for the whole number of courses 
taken. For example, graduates from city high schools of Class A took 
4,645 courses; similarly, graduates from the township high schools of 
Class A took 545 courses. Another column follows in which the number 
of courses failed and the percentage calculated of the number of courses 
failed based on the whole number of courses taken are shown. The per- 
centage of courses failed is the last column in the table. Reading this 
last column in the table we note that 8.56 per cent of the courses taken 
by city high school graduates in Class A were failed. Similarly, 8.81 
per cent of the courses taken by graduates of township high schools of 
Class A were failed, and so on throughout the table. 

This information is shown graphically in Figure 26. Figure 26 
pertains to the column marked "Ver Cent of Students Failing in 1 or 
More Courses." The first column shows the size of the school, the second 



206 

sliOA\-s the percentage of students failing in one or more courses. This 
percentage is represented graphically at the right hy hollow bars for the 
city high schools and solid bars for the township high schools. 

Note that in Class A 40.79 per cent of the graduates from city high 
schools failed in one or more courses, and this is represented by the hol- 
low bar adjacent to it. Similarly, 36.36 per cent of the graduates of 
township high schools taking courses in the University failed, and this 
percentage is represented by the solid bar adjacent to it. 

By studying the horizontal columns of figures marked "Per Cent of 
Students Failing in One or More Courses" and examining the graph at 
the same time certain conclusions are outstanding. 

The percentage of students failing in one or more courses in the 
University is distinctly larger in the case of city high schools than in the 
ease of the township high schools in every class except Class E. Disre- 
garding the class divisions and taking the students in the aggregate, it is 
also to be noted that the percentage of students who fail is larger in the 
case of city high schools as compared to township high schools. The 
ratio is the percentage of 38.1 per cent as compared to 34.53 per cent. 

A third conclusion to be drawn from this table and graph is that the 
students from the smaller schools fail in larger numbers than those from 
the larger ones, although this difference is not as marked as one might 
expect. 

A fourth fact is that there is a smaller percentage of students failing 
in township high schools which have underlying them a well graded sys- 
tem of elementary schools. In a preceding chapter it was found that the 
enrollment in township high schools of Classes A and B was largely made 
up of pupils coming from one-room country schools, and village schools 
of from 2 to 5 teachers. In township high schools of 200 enrollment and 
over or in Classes C and D the predominating part of the enrollment 
comes from well graded elementary schools. In drawing comparative 
conclusions here it is well to disregard Classes E and F since the num- 
ber of township high schools shown is so small. It is clear then that 
the township high schools surpass the city high schools as regards the 
percentage of students failing in one or more subjects when they have 
underlving them well graded elementary school systems as in Classes 
C and'D. 

The horizontal column marked "Per Cent of Courses Failed" is rep- 
resented graphically in Figure 27. This graph is constructed in exactly 
the same manner as the preceding one. It will, be noted that here again 
the percentage of courses failed is greater in the case of the small high 
schools than in the large ones. 

Here again it is well to disregard classes E and F because the num- 
ber of township high schools involved is so small as to be inconclusive 
as regards a comparison of township high schools and city high schools. 
In the percentage of courses failed it is evident again that the township 
high schools which have a great majority of their students coming from 
well graded elementary schools show greater efficiency than the city high 
schools of the same approximate size. In the smaller high schools as 



207 



in Classes A and B the city high schools surpass the township high 
schools. This can be accounted for in a similar way in that the city high 
schools have a smaller proportion of their students coming from rural 
and other relatively ungraded schools. 

In the aggregate the percentage of courses failed is slightly greater 
in the case of the township high schools than in the case of the city 
high schools. This difference however is a very slight percentage — 15 
hundredths of one per cent. 

It is, however, hardly proper to base all conclusions relative to effi- 
ciency in scholarship upon the number and percentage of students fail- 
ing and the number and percentage of courses failed. This is a com- 
mon method of investigation which needs to be reinforced and amplified, 
howevei;, by a study of the situation as regards students who are suc- 
cessful. Information reflecting this latter aspect of the situation is 
tabulated from these transcripts of freshman records in Tables LXXX to 
LXXXIV inclusive. 



Fig. 27. — Courses failed by higli scliool grad- 
uates in the freshman class of the University of 
Illinois. The high schools are classified in the 
first vertical column according to the number 
enrolled. In the second vertical column is 
shown the pei'centage of courses failed by grad- 
uates from each group of schools based on the 
entire number of courses taken by graduates 
from that group of schools. These percentages 
are represented by the horizontal bars. The 
hollow bars represent the percentages in the 
case of the city high schools and the solid bars 
represent the percentages in tlie township high 
schools. 



Siieo/ 

School 


Per 
Ont 










1 to 
1 oo. 


8 56 
8 80 










1 Olto 
2.00. 


7 80 

10 99 










zoito 
300. 


6 87 
6 65 


^^^^^ 








3oito 
5oo. 


7.93 
6 SO 


^^^^^-^ 








501 to 
looo 


6 43 
8 Bi 










loo It. 
over 


7 36 
2 88 


1 


iHiH~ 








Total 


7 S9 
7 74. 


^^^^, 









Table LXXX comprises information for the year 1911-12, LXXXI 
for the year 1913-13, LXXXII for the year 1913-14, LXXXIII for the 
year 1914-15. The aggregate of all these records for the four years is 
tabulated in Table LXXIY. All of these tables are constructed in the 
same manner. To compile these tables the record of each student was 
averaged, and Table LXXXIV is a summary of these averages. 

In Table LXXIY the number of averages below TO for each group is 
set in the horizontal column opposite the designation "Below 70." The 
number of averages in each group from 70 to 74.99 is set over in the 
horizontal column following these figures, and so on throughout the 
table. In the vertical column next to the number of cases in each group 
is shown the percentage that this number bears to the total number of 
cases in this group. 

There are 529 graduates from city high schools of Class A; 41 grad- 
uates or 7.75 per cent of this number received a grade of below 70. Of 
the total number 14.93 per cent or 79 of them received a grade of from 
70 to 74.99. By a study of the various columns in this respect it is 



208 











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218 

easy to find out the practice of the University in its treatment of schools 
of the varions sizes and kinds as to its distribution of grades. 

There is a liorizontal column for the total number of students from 
each grouiD. And just to the right of the number in each case is the 
percentage that that group bears to the total number of students in this 
study, nameh', 3,359. In the lower part of the table are horizontal col- 
umns for the median, the first quartile, the third quartile and the quar- 
tile deviation. 

The information shown in the horizontal column for medians is 
shown graphically in Figure 28. This graph has a column at the left 
for size of the group of scho.ols under consideration. The second column 
is for the median average grade in each group. The median for the city 
high schools is represented graphically at the right by the hollow bar. 
The median average grade for the township high schools in each group 
is represented by the solid bar. 



Sizgof 
School 


cent 










1 to 

loo 


80.39 
81.05 








■ 


\OITo 

2oo 


80.11 
80 50 










aoiu 

300, 


80.^5 
81.31 










30lto 
500. 


80 ?4 

ei 65 










501 to 
1000. 


81 -4-* 

60 00 










lOol 
over- 


80.66 
61.99 











Fig-. 2S. — Median average scholarship of high school graduates in the freshman 
class of the University of Illinois. The high schools are classified in the first 
vertical column according to the number enrolled. In the second vertical column 
is shown the median average grade made by high school graduates from each 
group of schools. With 100 per cent as the base the horizontal bars were con- 
structed to represent these median average grades. The hollow bars apply to city 
high schools and the solid bars to the township high schools. 

In the inspection of the horizontal column of medians it is again 
advisable to omit Classes E and F for the same reasons as heretofore. 
Omitting these the median average grade in the township high schools 
is higher in every case than in the city high schools. In this connection 
it is well to call attention to the large difference which a variation of 
one per cent in the median average grade represents. Between 28 and 29 
per cent of the freshmen in the University average between 80 and 85 
per cent in scholarship. Hence a difference of one per cent in the median 
average is a large one. 

The first horizontal column in Table LXXXIY, namely that marked 
"Below 70/^ is represented graphically in Figure 29. This figure is con- 
structed exactly like the preceding one. The first column is for the size 
of school, the second for the percentage ; and the percentage for the city 
high schools is represented by the hollow bar, the percentage for the 
township high schools by the solid bar. 

An interpretation of this column and this graph brings out very 
definitely that in the smaller schools, that is in Class A, B and C, the 



219 

township high schools have a markedly higher percentage of students 
below 70 ; and in the larger schools, that is in Class D, E and E, they have 
a markedly smaller percentage of students below 70. In other words, the 
larger township high schools have a distinct advantage in scholarship in 
the University over the smaller township high schools and over the city 
high schools of all classes. The natural inference from this is that the 
township high school, if it has the advantage of underlying districts 
which are highly graded, has the better opportunity for sending high 
grade students to the University. 

In the vertical column marked "Total,'' which shows the total per- 
centage for city high schools and for township high schools, we have a 
table of the practice of the University as it treats township high schools 
and city high schools as a whole. This column is represented graphic- 
ally in Figure 30. This graph is constructed exactly the same as the 
preceding ones. It will be noted that in the case of city high schools of 
Class A 7.1 G per cent of the students get below 70, and in the case of 



Size 
School 


Per 
Cent 










1 to 
1 OO 


y.75 
I0.06 










101 
200 


7.21 
17.05 


w^am^ 






20) 
300 


4 58 1 

9.09 ^Hi^H^^^iHl 






301 

500 


8.18 
4.16 










501 
looo 


6.34 1 

5.19 fe^^^i^p^ 






lOOl 

over 


e.99 

4.00 


I 




1 



Fig. 29. — High school 
graduates in the freshman 
class of the University of 
Illinois whose average in 
scholarship is "below 70." In 
the first vertical column the 
high schools are classified 
according to enrollment. In 
the second column is shown 
the percentage of graduates 
from each group of schools 
whose average in scholar- 
ship is below 70 based on 
the entire number of grad- 
uates coming from the 
group of schools in question. 
These percentages are rep- 
resented by the horizontal 
bars. The hollow bars rep- 
resent the percentages in 
the case of city high schools 
and the solid bars in tlie 
case of the township high 
schools. 



township high schools of this class 8.67 per cent get below 70. Similarly 
both the table and the graph are to be read down the column. It is to 
be noted on the one hand that the township high schools 'show the largest 
percentage of pupils below 70. They also show the largest percentage of 
pupils getting between 85 and 90, also between 90 and 100. The city 
high schools have the largest percentage between 75 and 80, and slightly 
more than the townshii^ high schools between 80 and 85. In other words, 
the township high schools have the largest percentage of pupils who have 
an average below 70, and also a larger percentage of pupils getting 
above 85, 

A study of this distribution brings out the fact that the University 
in its treatment of freshmen in the matter of grades follows the prob- 
ability curve rather closely, with the possible exception to be noted that 
the university instructors use the grades from 95 to 100 very sparingly. 
Sometimes harsh criticism is levelled at a high school or a university be- 
cause of the large number of failures. The table of the practice of the 



220 

University will not bear out this criticism. WTien only about 71/2 per 
cent of the students have an average grade below 70 no serious criticism 
is justified, when general standards of current scholarshii? are taken into 
consideration. 

In this connection also it should be noted that 37.36 per cent of the 
students failed in one or more courses. A comparison of this figure with 
the practice in most high schools will reveal the fact that the practice of 
the University corresponds almost identically with the practice in the 
lower schools. Most high schools fail about 32 to 37 per cent of their 
students in one or more courses. This is only another fact bearing upon 
the general proposition that the scholastic situation as shown by the 
high schools and the universities to which they contribute is a different 
aspect of the same problem. The universities and high schools meet this 




Fig-. 30. — Distribution of average grades made by high school graduates in the 
freshman class of the University of Illinois. In the first vertical column the 
avei-age grades are grouped. In the second column the percentage of graduates 
from township high schools securing an average within a certain group is set oppo- 
site that group. This percentage is based on the entire number of graduates 
coming from township high schools. Percentages in the case of city high schools 
are treated in a similar manner. The hollow bars represent these percentages in 
the case of the city high schools and the solid bars in the case of the township 
high school. 

scholastic problem in practically the same manner so far as the marks 
are concerned. 

The general facts which may be drawn from the investigation con- 
ducted in this chapter are as follows. A larger percentage of graduates 
of city high schools fail in one or more courses than graduates of town- 
ship high schools. 

The graduates of township high schools which have well graded ele- 
mentar}' schools contributing to them show a smaller percentage of 
courses failed than city high schools of approximately the same size which 
are probably equally well equipped as to elementary schools. A larger 
percentage of the pupils from the smaller high schools fail than those 
from the larger high schools. The advantage of the larger schools seems 



221 

to begin here with Class B. Similarly in the percentage of courses 
failed the advantage is with the larger schools. Here again the ad- 
vantage starts with Class B. The median average grade is higher in 
the case of the township high schools as compared to the city high schools. 
As regards the number of pupils who have averages below 70, the town- 
ship high schools furnish the largest percentage of these in Classes A, B 
and C, again emphasizing their lack of well graded underlying ele- 
mentary schools. They furnish decidedly the smaller percentage of 
pupils who have averages below 70 in the case of the larger schools, that 
is. Classes D, E and F. The township high schools in the aggregate fur- 
nish the largest percentage of students averaging below 70 ; they also 
furnish the largest percentage of students averaging above 85 per cent. 
It is clear that on the whole the township high schools have a higher 
standing in scholarship in the University of Illinois than the city high 
schools. They are markedly superior in those township high schools 
which have underlying city districts with well graded schools. The ob- 
vious conclusion to be drawn from this is that a high school with superior 
material and financial advantages, such as the township high schools 
have, will furnish better students to the University in case the underlying 
districts are well graded. An examination of the horizontal column for 
quartile deviation shows here as elsewhere in this investigation that the 
township high schools involved have a larger deviation than city high 
schools, thus showing a greater tendency toward variance in practice. 



CHAPTER X. 



THE UNDEELYING TEREITOEIAL UNIT. 

The foundation of any system of schools is the territory which it 
covers. The limits of a district determine the basis of taxation and out- 
line the foundation of its financial support. The geographical boun- 
daries of a district have a very definite influence on the progress of the 
school. It is in the last analysis probably the most important feature. 
At any rate, the territorial unit joined with the social conditions environ- 
ing the high school is the primary determining factor. 

In order to systematize the information upon this point a report 
on the township high schools which was turned in to the State Superin- 
tendent's office in May, 1916, was collated in Table LXXXV. 

The table pertai-ns entirely to township high schools. There is no 
information available on city districts. The information pertains to 110 
township high school districts. The number of districts that have from 
1 to 5 square miles is shown in the appropriate group, the number from 
6 to 10, and so forth. Then beginning to read the first horizontal col- 
umn at the^ top we notice that there is one high school in Class A that 
has 1 to 5 square miles of territory, and one that has from 6 to 10. It 
will be noted that of the 4 high schools set down in Class E two of them 
have only from 6 to 10 square miles of territory. It is very clear that 
these two township high schools are merely city districts operating under 
the township high school law. It will be noted that there are 2 township 
high schools that have from 76 to 100 square miles of territory, and 2 
have over 100 square miles. In other words, they have more than three 
regular townships in their territory. 

An inspection of the latter part of the table shows that there is no 
material difference between the various classes as to the amount of terri- 
tory which they cover. The small high schools have on the whole about 
as much territory as the larger ones. The school township, or 36 square 
miles, is the typical size. There are over 50 per cent of the township 
high schools covering the amount of territory included in a school town- 
ship. 

The conformation of the underlying territory is quite as important 
as the amount of territory involved. If a district is long and narrow 
but if it has a good transportation system such as an electric line or a 
railroad with adequate train service, all of its inhabitants may be move 
convenient to the township high school than in a territory that is more 
nearly square. A high school may be situated in the township in such 
a way that although the district is relatively snmll the high school may 
be difficult of access. 



223 



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324 

In order to learn the situation in this matter as regards the present 
laws reference is made to Chapter '2, in which the legal constiti;tion of 
the township high school is discussed. On page 7 eight ditferent kinds 
of high school districts are shown to exist nnder the general law printed 
as appendix B as follows : 

1. A school township. 

2. Two or more adjoining townships. 

3. Two or more adjoining school districts. 

4. Parts of adjoining townships. 

5. The remainder of a township part of which has been organized 
into a township high school. 

6. A school district having a population of 2,000 or more. 

7. A city and a township. 

8. Part of a school township divided by a navigable stream. 

As noted in Chapter 2, the general law was first passed in 1872 and 
was based on the Princeton Special Charter of 1867. From time to time 
this general law was modified to fit this or that local need as necessities 
arose. For example, it was decided to organize Centralia Township High 
School. But part of the city of Centralia lies outside of Centralia Town- 
ship. The Legislature responded to the local demand by amending the 
law so that a township high school district might be organized so as to 
include a city and township, the 7th of the kinds of township high school 
districts enumerated above. Most of the several kinds thus enumerated, 
aside from the first mentioned, originated in a similar manner. 

It will clarify the discussion to examine these various kinds in detail. 
To that end a figure is shown illustrating each kind of district. These 
figures are not all drawn to the same scale but the size of the districts is 
indicated by the sections which are numbered. 

The Joliet Township High School district is selected as the example 
of the first kind of township high school district under the general law, 
in that it includes a school township. That a school township should 
constitute a township high school district was the original provision of 
the law. The Joliet district is shown in Figure 31. Note that the lines 
of transportation all converge into the city of Joliet. The city of Joliet 
is the natural school center for this township. Cities like this could well 
be the centers for school districts of even larger area than a school town- 
ship. The Joliet high school is the largest township high school, in fact, 
it is the largest high school of any kind in the State outside of Chicago. 
It is an excellent example of the manner in which a city and its tributary 
rural territory may be combined to advantage into a single school district. 

The Tiskilwa High School is the only example of the second kind 
of district, namely, "two or more adjoining townships." This district 
is represented in Figure 32. Xote that the town in which the high 
school is located is almost in the center of the district and that the roads 
and the railroad make Tiskilwa the center of the district. 

Note. — Transcriptions for the cuts for these figures were made by Mr. Sigel R. Bumann of 
Thornton Township High School from the County Survey Maps pubHshed by Rand, McNally & Co. 



225 

The third kind of township high school district is that in which two 
or more adjoining scliool districts may be organized into a township high 
school district. The J. Sterling Morton High School at Cicero, 111., is 
an example of this class. An outline of the district is shown in Figure 
33. Isote that this high school district is somewhat smaller than the 
others. It is a compact suburban district near Chicago. Because of tlie 
relatively small size and the excellence of transportation facilities, the 



/^ /Vtf. / <f 




cJOLIJET TTV^ • 

Figure 31. 

school is easily accessible to all parts of the district. By the use of this 
section of the law many communities in the State could organize high 
school districts which would meet their needs, since the proper selection 
of school districts w^ould in many cases allow the formation of a high 
school district of the desirable size and shape. 

According to the fourth provision, "parts of adjoining townships" 
may be organized into a township high school. The Oak Park, and Eiver 
Forest Township High School is a good example of this, and an outline 
—15 I H S " 



226 

of the district is shown in Figure 31. Part of the district, that of which 
liiver Forest is the center, is in Proviso Township; that of which Oak 
Park is the center is in Cicero Township. This is a compact and populous 




^ 3 



district in Cook County innnediately adjacent to the city of Chicago. 
It has excellent transportation facilities. It is one of the largest town- 



227 



ship high schools in tlie State. The provision of the hiw also allows con- 
siderable elasticity in the formation of high school districts in that town- 
ship bonndary lines do not restrict the size or shape of the district. In 
fact, by the judicious use of provisions three and four most of the terri- 







EU EC. F9. f=9. 



a STERLIIVG M0F?TO]V 



Figure 33. 



tory of the State could be organized into high school districts in a de- 
sirable manner. 

In provision five "the remainder of a township part of which has 
been organized into a township high school," the Proviso Township 
High School located at Maywood in Cook County is an example. A part 



238 

of Proviso Township had been included in other township high school 
districts, e. g., a part had been included in the Oak Park and Eiver Forest 
district. Under this provision of the law the remainder of the township 
was organized into another high school district. This district is shown 
in Figure 35. Note that the transportation facilities are good. This 
provision is a special one, and the example given is the only one. The 
provision could not have very wide application throughout the State. 

The sixth provision is that a school district having a population of 
2,000 or more may be organized into a township high school district. 

/\/0' /2 • /t*. /S/0. / 3. 



On 








V 1 










, 


1 


— E 



OAK r^ARXC^^RIT^ER FOREST 



T\^. W. S. 

Figure 34. 

The Blue Island High School is an example of this. It is in Cook 
County near Chicago. An outline of the district is shown in Figure 36. 
In this case the high school district and the elementary school district 
are coterminous. The point in the organization of such a district is 
that the district which had been maintaining a high school found itself 
short of funds. By superimposing a high school district upon the old 
school district the power of taxation for school purposes was doubled. 
It makes necessary, however, two boards of education in the identical ter- 
ritory where there had been but one. The same superintendent is 



229 



selected by the two boards to have diarge of both the elementary school 
and the high school. 

The seventh provision is that a "city and a township" may be organ- 
ized into a township high school district. This is a very special provi- 
sion made to fit a particular situation. The city of Centralia lies partly 
in Centralia Township in Marion County and partly in another county. 
It was desirable to include the whole of the city of Centralia in the new 
township high school district which was to be created in Centralia Town- 
ship. Hence an amendment to the law was secured providing that a 




SCf~tC OL. S 



PROVISO TTi^ • 

Figure 35. 

city and a township may organize a township high school. This district 
is shown in Figure 37. Because an accurate map was not available that 
part of the city of Centralia which lies outside of Centralia Township is 
not shown in its accurate form. The remainder of the map is authentic. 
Note that the lines of transportation lead naturally to the city of 
Centralia although the city is located on the western boundary of the 
district. This is a very special provision and would not often find appli- 
cation in other parts of the State. The fact that the school is located at 



230 



one side of the district in this district leads to the general comment that 
the school should always be located with reference to density of popula- 
tion and accessibility as regards transportation rather than with refer- 
ence to the geographical center. In fact, geographical distance in itself 
should have very little influence in locating the building but should give 
way entirely to considerations of the density and accessibility of popu- 
lation. 

Another special provision is the eighth one, namely, that a part of a 
township divided by a navigable stream may be organized into a township 



A\/OS 




Figure 36. 

high school. The only example of this is Sterling High School, located 
in Whiteside County. This district is represented in Figure 38. It will 
be noted that the district lies north of the Rock Eiver and that although 
the high school is located in Sterling at the extreme south side of the 
district, the lines of communication lead directly to it. This provision 
would not have very wide application elsewhere in the State. 

The eight examples already discussed illustrate all the different ways 
in which township high schools may be organized under the general 
school law. 



231 

The original Special Charter which was granted to Princeton in 
1867 was never repealed, and the Princeton To\Aaiship High School con- 
tinues to operate nnder its provisions. This charter is given in full in 
Appendix A. An outline of the Princeton District is shown in Figure 
39. By noting the various lines of transportation it is readily seen that 
the city of Princeton is the natural center of the township. It is located 
in Bureau County. As was shown in Chapter 1, the people of Princeton 
and those out in the townships felt themselves to be parts of the same 




SC f-fC ci. s 



CE ]V TR AL I A. TW • 



Figure 37. 

community and as a result of this feeling tLey organized this first town- 
ship high school. They furnished the example for all the succeeding 
evolution of township high schools in Illinois. 

There were two township high schools organized inuler the law of 
1905, viz., Waukegan and Collinsville. This law is given in full in 
Appendix C. 

Waukegan Township High School is located in Lake County and is 
represented in outline in Figure 40. So far as the territorial district is 
concerned, it is not different from any township high school district 



232 

which is organized under the first provision of tlie general law discussed 
above. The same is true of the Collinsville Township High School dis- 
trict, which is located in Madison County, and is represented in Figure 
41. This law so far as territory is concerned applies only to school 
townships and does not have an application so wide as the general law. 
The two high schools mentioned above are the only ones organized under 
this law. 

Figures 31 to 41 inclusive and the attending discussion give an ac- 
count of all the various kinds of township high school districts which are 
organized or which can be organized under the general law, the Princeton 



/=9. /SfO. 7 C-^ST. 




sooo /=?o^os 



STEFJLIIVG T^\r « 



Figure 38. 

Charter, and the law of 1905. Xo figures are given of high school dis- 
tricts which have been organized under the law of 1911, because it pro- 
vides for districts of any size or shape which meets the needs of the 
community. The law of 1911 printed as Appendix D was passed by the 
Legislature to facilitate the organization of territory into high school 
districts and make them conformable to local requirements. It provides 
that any contiguous and compact territory, whether in the same or dif- 
ferent townships, may be organized into a township high school district. 
This law more than any other township high school law has provided for 
local needs in the way of allowing a proper adjustment of the boundaries 



233 

of the high school district. That it has done so is attested by tlie fact 
that so large a number of high schools were organized under it soon 
after its passage. 

This law^ however, is capable of certain abuses. Under it some 
high school districts have reached out and taken territory which was nat- 
urally tributary to them and which did not find the high school accessible. 
This is manifestly an injustice. Other high schools have been organized 




PRIIVCJETOIV XT^^* 



^ooo ^e^^y 



Figure 39. 

not with the purpose of establishing high schools but for the purpose of 
preempting territory so that a progressive and enlightened community 
might not include it in its high school organization. Such high school 
districts when once organized have been allowed to lie dormant with no 
attempt to organize a school township and building a building. Occa- 
sionally a high school district has been organized for the purpose not of 
organizing a school and conducting it but of paying tuition to other 



234 



f=?. /^O. IB £. S""- /=»/=?/ fsj. A^. 




Figure 40. 



235 

districts. This latter purpose when undertaken in good faith wonkl 
seem to be perfectly in order. It is the evils referred to above that should 
be avoided in succeeding legislation and in the educational administration 
of the schools of the State. 

It is now time to address ourselves to the general principles referred 
to which should be the governing ones in determining what should be the 
limits of a high school district. It is certain that the political boundaries 
which determine the county and township lines should not be the de- 



R. ISIO. 8 H^. 



3 /=tA^. 




t- 



MiSHWAy-S ■ SCMC O I.S 



COIuLITS^SVILI.E TW * 



Figiue 41. 



termining factors. It might be objected that political administration 
is conducted along these lines and hence the finances of the high school 
district could thus be better managed. The State has had enough experi- 
ence already in the conduct of districts which do not follow these boun- 
dary lines to show that it is entirely practical to disregard them. If 
these new township high school districts are to be organized without re- 
gard to the precedent set by the various political units, what then are the 
principles that we should set up? 



236 

First and foremost^ we could set up the principle tliat a high school 
should be organized of sufficient size to give the best results educationally. 
The figures foregoing show that the schools begin to reach their maximum 
efficiency in regard to buildings, equipment, teaching force, breadth of 
course, and excellence of scholarship in the university when they have 
an enrollment of 201 to 300. Our first standard then in setting up a 
high school district would be to include that number if possible. How- 
ever, if the territory is too sparsely settled or if for other social or geo- 
graphical reasons it is not possible to set up a district providing a high 
school as large as this, a high school smaller in enrollment, say 101 to 
200, can be provided and good results can be attained with the relatively 
narrow course of study and narrow limitations put upon teaching force, 
equipment, and so forth. An enrollment of 100 should be regarded as 
the minimum for securing effective work. It is found, however, that 
even in the smaller high schools good work has been done in the university 
by graduates of such high schools. But a study of these meager schools 
in detail shows them to be severely handicapped, and the organization 
of such schools should be avoided if it is at all possible. 

In trying to aim at a high school of a certain size, say 200 to 300, 
the question at once arises how is it possible to determine that such a 
high school can be set up when there is no precedent in the community 
to furnish a guide? This can be determined readily from the experi- 
ence of the State as a whole. It is shown in Table LXX that a district 
which has from 1,522 to 3,014 people under 21 typically can sustain and 
does sustain a high school of 201 to 300 enrollment. It has also been 
shown in Table LXXI that when there are 804 to 1,506 pupils enrolled 
in the elementary schools that the State can and does suppqrt a high 
school of 201 to 300 enrollment. A study of the preceding tables thus 
laid down will enable us to determine how large a high school may con- 
fidently be organized on the basis of the situation existing in the com- 
munity as to census of minors and the enrollment in the elementary 
schools. 

A second standard which should guide in setting up a high school 
district is the distribution of the population. It is certain that so far 
as possible a city or a village should be included in the organization and 
that the configuration of the district should conform as far as possible 
to lines of rail transportation and should take into account the number 
and direction of good roads. A narrow consideration of this matter of 
transportation should not be a determining factor. In order to make this 
proposition as effective as possible the State Legislature should not only 
authorize but require free transportation for pupils living in outlying 
districts. 

A third and possibly one of the most important factors should be the 
matter of finance. If possible, a high school district should be organized 
so as to cover as wide a territory as possible, keeping in view the other 
considerations named above. The high school within the limits of acces- 
sibility and the needs of other districts should be made as large as possible 
so that the school will have ample financial foundation. It has been 
shown in the preceding part of this study that when the people have an 
opportunity to support an efficient high school they do so, and ample 



237 

opportunity should be grant<?d. It is a mistake to organize a number 
of small high schools centering about little towns. It can serve no useful 
purpose and all of the schools so organized are weakened in their progress, 
and they are set permanently on a basis that is unsatisfactory and when 
once thus organized it is almost impossible to consolidate them with 
others. 

In this connection it is important to discuss the situation in the 
State as a whole. The State of Illinois itself comprises a State wide 
school district for the support of the University of Illinois. It is not 
common to so regard the State but since all the taxable property of the 
State is assessed for the support of the University of Illinois, it is proper 
to regard it in this manner. 

The entire State is subdivided into elementary school districts and 
all of the property of the State is taxable to support these separate dis- 
tricts. In addition to this a tax is levied upon all of the property of the 
State for the State Distributable Fund, and this is distributed on the 
basis of the school population to all of the elementary school districts 
of the State. It will thus be seen that there is a big gap in the State's 
provision for education. The whole State is taxed for the University, 
the whole State is taxed for the elementary schools, a large part of the 
State is not organized into high school territory and is not taxed for high 
school purposes. Now the high school system is just as much a part of 
the educational system of the State as either the elementary schools or 
the University. This gap should be closed, and all the property in the 
State should be taxable for high school purposes also. 

All of the territory of the State should be reorganized so that high 
school territory should be coterminous with the boundaries of the State. 
Principles such as were discussed above should be the determining factors 
in this State wide reorganization. 

There are some other factors bearing upon our problem. "We will 
now address ourselves to that subject. In order to learn of the character 
of the underlying elementary school districts in the township high school 
districts Table LXXXYI was constructed, which shows the number of 
underlying districts which comprise the various township high school 
districts. 



TABLE LXXXVI— NUMBER OF UNDERLYING ELEMENTARY SCHOOL DISTRICTS 
WHICH COMPRISE THE TOWNSHIP HIGH SCHOOL DISTRICT 









Single teacher 


Schools 
haxing two to 


Schools 
having six to 


Schools 
having over ten 


o 








o . 




five teachers. 


ten teachers. 


teachers. 


i 








o"© 










'5 


o 






















Xi o 


















o3 






if 


No. 


Per 

cent. 


Per 

^0- cent. 


No. 


Per 
cent. 


No. 


Per 

cent. 


C3 

O 


> 

< 


A, 


1-100 


32 


223 


86.7 


22 i 8.6 


11 


4.2 


1 


9.4 


257 


8 


B, 


101-200.... 


18 


103 


77.4 


9 


6.8 


6 


4.5 


15 


11.3 


133 


7 


r. 


201-300. . . . 


12 


69 


75 


9 


9.8 


1 


1.1 


13 


14.1 


92 


8 


D. 


301-500 . . . 


11 


42 


52.5 


13 


16.3 





6.3 


20 


25 


80 


/ 


E. 


501-Over.. 
Total 


3 


1 


10 


1 


10 


1 


10 


7 


70 


10 


3 




76 


438 


76.6 


54 9.4 


24 


4.2 


56 


9.8 


572 


7.5 



: 238 

This information covers 76 township hig-h schools in the State. The 
tirst vertical colnmn shows the number and percentage of the districts 
which maintain single-teacher schools. The second vertical column 
shows the number and percentage of the districts which support schools 
having from 2 to 5 teachers. In the 32 township high school districts of 
Class A there are 22 underlying elementary school districts which sup- 
port schools having from 2 to 5 teachers. There are 257 elementary 
school districts underlying these 32 township high schools. It is clear 
then that the majority of the underlying districts of Class A are rural 
districts. Of these 86.7 per cent support one-room schools, and 8.6 2)er 
cent support schools having from 2 to 5 teachers. In other words, the 
preparation of high school students going to these township high schools 
is distinctly that of the country school. 

It will bo seen in Classes B and C also that there are. a large numl)er 
of districts of this kind. However, the information shown in this table 
will be illuminated by that brought forth in following tables. Xote the 
fact, however, that on the average the township high schools of Classes 
A, B, C and D have practically the same number of underlying districts, 
an average of 71/2- The township high schools of Class E have about 
3 underlying districts. In other words, the high schools of Class E are 
based upon city elementary districts. 

The next item of information which bears upon the character of 
elementary schools contributing to the township high schools is that 
which relates^to teachers. This information is shown in Table LXXXYII. 

TABLE LXXXYII— NUMBER OF TEACHERS EMPLOYED IN THE VARIOLTS UNDER- 
LYING DISTRICTS. 





o 
o 

3 


Single 
teacher 
schools. 


Teachers in 
districts 
having 
schools 

with 2 to 5 
teachers. 


Teachers in 
districts 
having 
schools 

with 6 to 10 
teachers. 


Teachers in 
districts 
having 
schools 

with over 10 
teachers. 


1 

o 


"o 
c 

f 
a 

< 


•a 

n 

o 






No. 


Per 
cent. 


No. 


Per 
cent. 


No. 


Per 
cent 


No. 


Per 
cent. 


< 


A. 1-100 

B. 101-200 

C. 201-300 

D. 301-500 

E. 501-Over.... 


32 
18 
12 
11 
3 


223 
103 
69 
42 
1 


55.3 

21.3 

12.3 

4.7 

.2 


76 
19 
30 
42 
2 


18.9 
3.9 
5.4 
4.7 
.4 


91 

48 

9 

41 

S 


22.6 
9.9 
1.6 
4.6 
1.7 


13 
314 
452 
769 
449 


3.2 
64.9 

80.7 

86 

97.6 


4a3 

484 
560 
894 
460 


12.6 
26.9 
47 
81 
153 


257 
133 
92 
80 
10 


1.5 
3.6 
6 

11.2 

46 


Total 


76 


438 


15.6 


169 


6 


197 


7 


1,997 


71.3 


2,801 


36.9 


572 


4.9 



This table shows the number and percentage of teachers teaching in 
school districts supporting school of various sizes. For example, in 
Class A there are 76 teachers teaching in underlying districts supporting 
schools having from 2 to 5 teachers" It will be readily seen that this 
reveals the conditions as to the character of the elementary schools prob- 
ably better than the preceding table. An inspection of the table in gen- 
eral shows that there are 2,801 elementary teachers teaching in schools 
tributary to the 76 township high schools involved in this tabulation. 
Here again we note the large proportion of rural teachers teaching in the 



239 

•elementary schools of Class A. There is also about one-fourth of the 
teachers in Class B who teach either in country schools' or in village 
schools. The number of teachers teaching in country and village schools 
is still a considerable factor in Class C. 

The larger high schools draw tlieir pupils from city districts. This 
fact is shown rather vividly in the vertical column marked "Average 
number of teachers per district." It will be noted that as the size of 
a high school increases the average number of teachers per elementary 
school district increases more rapidly. For instance, there is an average 
of 11/2 teachers per elementary school in the districts underlying the 
schools of Class A. There is an average of 6 per school in the case of 
underlying districts of Class C, and so on. 

The further information bearing upon this consideration is shown 
in Table LXXXVIII. 

TABLE LXXXVIII— NUMBER OF PUPILS COMING FROM ELEMENTARY SCHOOLS OF 
EACH OF THE VARIOUS SIZES. 





2 '3 


§1 
en a 

■S § 9 


~ o 

PI 

■— So 

So;? 

3iiH2 


3 S 

iP 

ill 

u S « 


a o *j 
3i:M 
Z 




Number of pupils 
from schools 
6 to 10 teachers. 
^er cent of pupils 
from schools 
6 to 10 teachers. 


a o > 
ai o 
Z 


Per cent of pupils 
from schools of 
over lU teachers. 


as 

—"S ■ 
-^ ~-g 

III 

z 


so 

ao . 

OS o 

111 

Oh 


3 


A. 1-100 

B. 101-200 

C. 201-300 

D. 301-500 

E. 501- Over 


25 
19 

13 


23 
18 

7 
8 
* 


507 
638 
318 
306 


37.2 
25.9 
17.9 
10.7 


393 
72 
82 

323 


28.8 
2.9 
4.6 

11.3 


406 

785 

108 

1,160 


29.8 

31.9 

6 

40.7 


35 

871 

1,272 

978 


2.6 
35.3 
71.4 
34.3 


22 
97 

1 
83 


1.6 
3.9 

"2.9 


1,363 
2,463 
1,781 
2,850 


























Total 


69 


56 


1,769 


20.9 


870 


10.2 


2,459 


29 


3,156 


37.3 


203 


2.4 


8,457 



* No accurate data. 

There arc 69 township high schools involved in this tabulation. 
There are 56 of these high schools reporting on this item. This table 
shows the number of pupils coming from elementary schools of the vari- 
ous sizes, and the general method of the tabulation is the same as in 
preceding tables. One of the vertical columns shows the number of 
pupils who are not identified. It will be seen that the information so 
far as it is presented is very complete. It involves an elementary popula- 
tion of 8,457 high school students. It will be noted that 2/3 of the 
pupils attending township high schools of Class A come from rural a^id 
village schools. In Class B 28 per cent of them come from country and 
village schools. This table shows that the schools of Class C are also 
•measurably influenced by the country and village schools. The work of 
the high schools'of Class C is based on fairly well organized elementary 
school training. 

Looking at the totals, it will be noted that 31 per cent of all of the 
pupils attending township high schools come from country and village 
schools; 29 per cent come from schools having from 6 to 10 teachers, that 
is, they are fairly well graded and organized from the point of view of 
elementarv education. 



240 

There is no adequate body of information available for the study of 
the distribution of population such as would give guidance in this mat- 
ter of the organization of township high schools. However, it is possible 
to get some information from the statistics furnished by the United 
States Census Bureau. Table LXXXIX was constructed on the basis 
of the U. S. Census Report for 1910. It shows the aggregate popula- 
tion of villages of Illinois of 500 and under at the time the three decen- 
nial censuses were made, namely, 1890, 1900 and 1910. 



TABLE LXIX— POPULATION OF ILLINOIS TOWNSHIPS AND VILLAGES, 
POPULATION OF ILLINOIS VILLAGES. 





A 
1-100 


B 

101-200 


C 
201-300 


D 
301-500 


E 
501-Ovpr. 


1910 


162,322 
133,605 
75,529 


194,087 
157,856 
106,816 


89,579 
68,424 
45,745 


38,070 
22,015 
14,525 


39,104 


1900 


32,436 


1890 


17.221 







POPULATION OF ILLINOIS TOWNSHIPS, EXCLUDING \ILLAGES. 





A 

1-500 


B 

501-1,000 


C 
1,001-1,500 


D 

1,501-2,000 


E 
2,001-2,500 


F 

2,501-3,000 


G 

3,001-4,000 


H 

4,001-5,000 


1910 


65.191 

78 ',244 
79,028 


705,341 
807,721 
795,694 


387,119 
417.191 
406,261 


115,372 
121,400 
112,061 


47,290 
40,508 
42,378 


29,826 
24,429 
24,586 


26,814 
18,803 
9,931 


12,991 


1900 


12,431 


1890 


6,312 







The villages in the compilation of this table were grouped according 
to population as follows : 1 to 100, 101 to 200, and so forth, as indicated 
in the table. The total population in each group is shown for each of 
the decennial years indicated. An inspection of this table shows that in 
every group there was an increase in population during the twenty years 
covered by these figures. It is very clear from these figures that town- 
ship high school districts which are organized with one or more villages 
will easily secure a reliable school enrollment. If they begin with a fair 
enrollment, they will surely increase in size with the increase in popu- 
lation. 

In order to throw further light upon this question the population of 
the townships of Illinois, excluding villages, was calculated. These 
townships are calculated in groups of 501 to 1,000, 1,001 to 1,500, etc., 
up to 50,000 and over. An examination of the figures shows that up 
to 1,500 there is a decrease in rural population in the townships exclud- 
ing villages. In the townships having a population above 2,000 and on 
up to 5,000 there is an increase. In a good many cases it is known that 
some of these more populous townships are suburban townships, and 
possibly all of them are. In view of the known tendency for villages and 
cities to increase in population and the tendency for rural districts to 
remain stationary or to decrease rather gradually, the present distribu- 
tion of population in Illinois can confidently be decided upon as a basis 
for the permanent reorganization of the State into high school districts 
covering the entire territory of the State. 



841 

By way of summary, in this chapter we have noted that the present 
township high school law of the State provides for the organization of 
township high school districts of many sizes and shapes. The experi- 
ence of the State in the organization of high schools furnishes adequate 
assurance for organizing high school districts on the basis of the social 
and geographical situation, disregarding political boundaries. In other 
words, the unit should be the social unit and not an artificial one de- 
termined by political boundary lines. Certain principles were set down 
as determining ones in the organization of a high school district, namely : 

First — There should be a township organization of sufficient size 
to give the best results educationally. 

Second — The distribution of population and transportation should 
be an important consideration. 

Third — Adequate financial provision should be made for the sup- 
port of the school. 

Attention was called to the fact that the elementary schools of the 
State are supported by taxation based upon the entire assessed valuation 
of the State. The State University is similarly supported. There is a 
wide gap here as to high schools, and the entire State should be reorgan- 
ized so that the entire assessed valuation of the State should contribute 
to the support of high schools. Tabulations of the districts, teachers, 
and pupils coming from the elementary districts show that the smallest 
township high schools (those under 100) are populated by pupils coming 
from country and village schools. A large proportion of those going 
to township high schools of 100 to 200 enrollment also come from country 
and village schools. They are a considerable factor in township high 
schools of from 200 to 300, although in township high schools of this 
size the dominating proportion of the student body comes from well 
graded elementary schools. In township high schools larger than 300 
the pupils pretty generally have a well graded elementary school educa- 
tion. 



—16 I H S 



248 



CHAPTER XI. 



LAUNCHING A TOWNSHIP HIGH SCHOOL. 

The organization of the new township high school involves a new 
social situation. Under the head of a school township or parts of a 
school township or other territorial subdivisions a combination must be 
united into a new unit for the organization of a new institution. This, 
of course, means readjustments of various kinds. People are associated 
in a new way. Social inertia must be overcome. One result is that 
previous to and immediately following the organization of a township 
high school it is natural to expect some excitement, some friction, some 
misunderstandings. 

This is reflected in the answers which were received as a result of a 
questionnaire which was sent out, reference to which was made in Chap- 
ter I of this monograph. In Question 8 of this questionnaire informa- 
tion was sought as to the high school facilities preceding the organization 
of the township high school. This information was collected and is 
tabulated in Table XC. 



TABLE XC— PREVIOUS HIGH SCHOOL FACILITIES. 





Number 
schools. 


Blank. 


District 
high school. 


Three 

years 

high school. 


Two 

years 

high school. 


None. 


A. 1-100 


25 
19 

7 
13 

5 




13 
13 

7 
8 
4 


5 
2 


5 


2 


B 101-200 




3 


C. 201-300 . . . .. 








D 301-500 




1 


1 


3 


E. 501-Over 


1 












Total 


69 


1 


45 


8 


6 


8 







In this table we have reports from 69 township high schools, only 
one of which failed to furnish this information. It will be noted here 
that 8 of these township high school districts had no high school facil- 
ities previous to the organization of the township high school ; 45 of them 
had district high schools mentioned as providing some facilities. The 
character of the replies on this point shows that these district high 
schools were in most cases very inferior. Eemarks were made by them as 
follows: ^'Poorly equipped," "Struggling to do creditable work," "Pre- 
vious high school had no standing," "Teacher also teaching in 7th and 
8th grades.'"' To be sure in some of these district high schools there 
were creditable high school facilities with proper accrediting relations, 
and in such cases as these the motive for the organization of a town- 
ship high school was that the high school be maintained on an adequate 



243 

basis, and with ample financial support. In fact, the most important 
motive in the organization of township high schools was the financial one. 
We have then an interesting situation where there are communities all 
over the State of Illinois who have very poor high school facilities and 
whose financial resources are very limited. These same communities by 
using the township high school device have been able to supply them- 
selves with enough financial resources to conduct successful high schools. 
As was mentioned in the first paragraph above, the installation of a 
township high school was expected to result in agitation, and did so 
result. Information on this point was sought in Question 1, first, as to 
the length of time the agitation lasted between the first proposition of 
the township high school and its final establishment. This information 
is shown in Table XCI. 



TABLE XCI— LENGTH OF AGITATION INCIDENT TO FORMING TOWNSHIP HIGH 

SCHOOLS. 





Number 
schools. 


Blank. 


Less than 
six months. 


Six months 

to one year 

and 

less than 

two years. 


Two 
to Ave 

years. 


Over five 

years. 


A 1-100 


25 
19 

7 
13 

5 


1 
4 
1 
5 
2 


16 
5 
1 
3 
2 


5 
3 
3 

2 


3 

5 
1 
3 
1 




b! 101-200 


2 


C. 201-300 


1 


D. 301-500 




E 501-Over 










Total 


69 


13 


27 


13 


13 


3 







Of the 69 township high schools furnishing information on this 
questionnaire 13 do not reply on this point. A summation of the table 
shows that the length of time usually required for this purpose is 
from six months to a year. Quite a number of schools reported less than 
six months, and quite a nuinlx'r more, from six months to a year. On 
the whole there are 40 schools which report that the period between the 
first proposal of the township high school and its final establishment was 
not longer than a year. It is to be noted, however, that in some in- 
stances this agitation stretched over a period of from three to five years, 
three stating that it was longer than five years. Wlien a community will 
agitate a question like this for as long a period as five years, it shows 
that there are certain interests in the community that are very persistent 
in attempting to secure the best educational possibilities available. 

In this matter of agitation information was sought as to the oppo- 
sition to the establishment of the township high school. This informa- 
tion is of such a character that it does not lend itself to tabulation read- 
ily, yet by going into detail it is possible to display it with some system. 
The result of this attempt is shown in Table XCII. 



244 



TABLE XCII— OPPOSITION TO ORGANIZATION OF TOWNSHIP HIGH SCHOOLS. 





o 


a 

o 
ft 

& 

o 


2 


03 

1 


Other replies. 


A. 1-100 

B. 101-200 

C. 201-300 

D. 301-500 

E. 501 Over 


25 

19 

7 
13 

5 


2 

1 

1 
2 

1 


9 

4 

1 

4 

2 


5 

2 

1 


Blank, 1; opposed by wealthy land owners, 1; farmers 
living at a distance from the building, 1; opposed by 
larger land owners, 1; low estimate of education es- 
pecially secondary, 1; ignorance of value of secondary 
education, 1; and liigh taxes, 1; opposed in county and 
carried in town, 1; no opposition until first taxes were 
collected then much opposition until school gained 
place in the heads of the people, 1; bitter at first, carried 
by one vote; opposition becoming friends of the school, 
opposition very much reduced each j^oar, 1. 

People at a distance kick, 1; chiefly from rural districts, 1; 
opposition from land owners, 2; strong from country, 1; 
from farmers, 5; from farmers and local jealousy, 1; not 
famihar with the benefits, 1; pretty strong at first when 
the people understood what was wanted, there was 
little opposition, 1; the opposition was due to distri- 
bution of population being mostlv at Herrin, west side 
of the district, east side opposed, L 

Farmers, 2; opposition to a new thing and afraid of high 
taxes, 1. 

Parochial schools, retired capitalists, large real estate in- 
terests, 1; fear of cost, 1; opposition of rival city, 1; blanks, 
1; bitter on account of locat on of building, 1; lack of 
information as to what the institution will do for the 
community, 1. 

Larger number would not benefit from high school, 1; 
fill for, 147 against, 1. 


Total 


69 


7 


20 


8 


34 







It is to be noted particularly that of the 69 schools 27 of them re- 
port "Little or no opposition." Six of the 13 schools in Class D say- 
that there was little or no opposition. There are 8 of the 69 township 
high scliools which say that there was considerable opposition. 

At the right of the table those schools that cannot be classed under 
the first three heads are reported in some detail. It will be seen that 
there are 34 of such schools. Most of the opposition reported and the 
bitterest is in Class A and Class B. Various kinds of opposition are 
reported, but it readily falls into two or three classes. Some opposed 
the organization of the township high school on account of increased 
taxes. .Opposition often came from wealthy land owners and farmers. 
A still further cause of opposition was the failure to appreciate the ad- 
vantages of secondary education. Still another is the disagreement be- 
tween various localities because of the location of the building. Consid- 
erable opposition develops because of distance from the building. In 
some cases it is noted that when people became better acquainted with 
the school advantages the opposition ceased. 

Corollary to the opposition which exists at the time of the organ- 
ization of the township high school it is desirable to note the present 
attitude of the patrons of these institutions. In order to have some 
information on this point Question 2 was included in the questionnaire. 
Information on this question is shown in Table XCIII. 



245 



TABLE XCIII— PRESENT OPPOSITION TO TOWNSHIP HIGH SCHOOL 





Is there any opposition to it as an 
institution at present? 


Would people be likely to 
vote it down now? 






i'es. 


No. 


Blank. 


Other replies. 


Yes. 


No. 


Blank. 


Other repUes. 


A. 1-100 


25 

19 

7 

13 


6 
3 


1 

8 
2 

8 




1 


Little,? 


2 


18 
18 

6 
12 
5 


2 




B. 101-200 


1 
1 


Very Uttle, 4. .. 


hardly, 1; some 
few, 1. 


C. 201-300 

D. 301-500 


Some, 1; little, 
2; very much 
in countr j% 1 . 

Little, 1 




1 


close, 1. 


E. 501-Over 


























Total 


69 


16 


34 


3 


As above, 16. 


2 


59 


3 


As above, 5. 



It will be noted that there are two parts to this table, one under the 
general head, "Is there any opposition to it as an institution at present ?'' 
the other, "Would people be likely to vote it -down now?" 

Under the first head the information is set up under two columns 
"Yes" and "No." Only three schools failed to report on this question. 
Under the head' of "Other replies" is listed that information which could 
not easily be included in the previous columns. 

It will be noted that 34 of the 69 high schools say that there is no 
opposition at present. Sixteen of them declare that there is opposition 
without specifying the nature of it. The remainder of the schools give 
a qualified reply, such as, "Little," "Very little," "Some," "Very much 
in the country." There are 16 of this kind of responses. 

On the whole it will be seen that the opposition after the organiza- 
tion of the school dwindled away to comparative insignificance. 

The latter half of the table is constructed exactly as the former half. 
A closer inspection of this part of the table shows that the judgment of 
the principals of 85.5 per cent of the schools, or 59 in number, is that 
the people would not vote the school down if it were submitted to a vote. 
Only two declare categorically that the people would vote it down. Only 
three of the list fail to furnish information. 

A proper summation of these figures makes it very clear that 
after a township high school is once organized it has the favor of the 
people and they could not therefore be induced to dispense with it. 

In considering the progress the township high schools have made in 
estimating their present status, it is important to note their age. This 
information was secured in Question 1, under the head "Date of Estab- 
lishment." This information is displayed in Table XCIV. 



246 



TABLE XCIV— AGE OF TOWNSHIP HIGH SCHOOLS. 







"o 








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9 
2 

2 


3 

8 
2 

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6 

9 

23 

18 


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6 

8 
22 
17 


1 

3 

2 
14 


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1^ 
27 


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101-200 


2 
1 
2 








O 


201-300 


2 
2 
3 






8 


T> 


301-500 


1 


6 

1 


^ 


E 


501-Over 






Total 














69 


1 


34 


14 


5 


7 


1 


7 


9.5 


5-6 


2 


15 


7h 











One of the 69 schools failed to report on this item. The rest of the 
information is reported under the heads ''Established 1 to 5 years/* 
"6 to 10 years/' The median, the first quartile and the third quartile 
are shown in the latter part of the table. The median age of all the 
township high schools in the State is 5^2 years, the average is 9^ years. 
It is to be noted that in Class A the median age is 3I/2 years, in Class 
B, 6 years. The class having the longest median age is Class D, in 
which this median is 22 years. 

A consideration of these figures shows that the township high school 
as an institution in Illinois is relatively young, and considering this fact 
in connection with the previous researches made in this monograph, the 
remarkable development of this institution is shown. One of the reasons 
why the schools of Class A have had such meager equipment, teaching 
force, plant, etc., is the fact that they are so young. In a word, they 
cannot be said to have established themselves until they have developed 
into Class B or Class C. It should be said, however, that there are 7 
high schools in this list which are over 25 years of age. 

As was stated in Chapter 2, the item which usually causes the most 
controversy and which makes or mars the institution often is the matter 
of the first bond issue. In Table XCV is given the information on 
this point. 

The schools here are distributed according to their size at the be- 
ginning. It will be noted that some of the high schools districts under- 
take to start their schools with a rather insignificant bond issue. Three 
of them began with an average bond issue of over $100,000. The median, 
however, in Class C is $55,000. When we take into consideration the 
fact that this table shows these schools distributed according to their 
size at the time of the first issue of bonds, the meagerness of the bond 
issue becomes very evident. For example, the fact that it is the habitual 
practice of schools of 200 to 300 in size to have a bond issue of only 
$55,000 shows that there was not very good planning done at that time. 

These initial bond issues are redistricted in Table XCVI, according 
to the size of the schools at present. 

For example, the median initial bond issue of the schools of Class D 
is $30,000, for Class C, $50,000. This table merely reinforces in a mor« 
striking way the fact brought out in the preceding one, namely, that in 
the first bond issue very little foresight was used. The bond issues were- 



247 





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248 

in most cases too small. The people believed that they were issuing suf- 
ficient bonds and building for a given territory in the future, whereas 
their action was merely a temporary makshift. A reference to Chapter 
3 where the present capital investment of these high schools is shown 
will make clear the fact that practically all of these schools have added to 
their capital investment very materially since their first bond issue. This 
fact brings out two principles very clearly. One is that the people after 
they have once organized a township high school learn to hold it in high 
regard and are thoroughly willing to provide the capital necessary for its 
permanent housing and equipment. The other is that the State needs 
to adopt some policy and formulate a body of information which will 
guide communities when they initiate a great undertaking like this. In- 
formation is available to show how large a building a community should 
build when it has a population of a certain size and an elementary en- 
rollment of a certain size. Furthermore, no plant should be constructed 
with a building plan so inelastic that proper additions cannot be made. 
Practically all high school buildings should be constructed with the defin- 
ite notion that the building is incomplete. Provision should be made 
for later additions which Avill be in harmony with previous construction 
and which will not violate the unity of previous construction. Further- 
more, the interiors of high school iDuildings should be so constructed as 
to be remodeled easily. Many considerations point to the fact that the 
interiors of high school buildings should be of a very elastic nature. Not 
only does the increase in high school population indicate this but the 
change in courses of study, and the rapid developments in educational 
policy make necessary the radical changes in interior construction. It 
is impossible to foresee all of this; the consequence is that the best man- 
ner of providing for it is to construct buildings having a modifiable in- 
terior. 

In this matter of growth it is interesting to note the situation in the 
township high schools. Information was collected on this point in Ques- 
tions 6 and 9, and was tabulated in Table XCVII. 

TABLE XCVII— GROWTH OF TOWNSHIP HIGH SCHOOLS. 







1 


First year. 




Fifth 


year. 




Present. 
















.9 ft 








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w 


-•9 






M 






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6C 
K 13 






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Ol 


U] 


d 


g oti 


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d 


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a OT ^ 


































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3 M £. 


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» So 






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< 


S 


Z 


<i 


"S 


p^ 


2; 


< 


S 


Oh 


A. 


1-100 


25 


24 


50 


40-41 


11 


55 


51 


10 


25 


59 


54 


18 


B 


101-200 


19 


19 


86 


84 


15 


121 


120 


40.7 


19 


137 


139 


59.3 


C. 


201-300 


7 


5 


146 


181 




195 


233 


33.6 


7 


254 


243 


74 


n. 


301-500 


13 


10 


157 


183-186 


9 


212 


213 


35 


13 


362 


344 


130.5 


F, 


oOl-Over. .. 


5 


4 


293 




3 


592 


535 


102 


5 


103 


851 


245 7 




Total 






69 


62 


102 


80 


43 


164 


124 


60.8 


69 


226 


139 


121 5 









This table shows the enrollment during the first year of the history 
of the institution, the fifth year, and the present year. There are 62 
schools which reported on this item. The average and the median are cal- 



249 

culated for each of the periods of time specified. It will be noted that 
on the whole the township high schools grew over 60 per cent during the 
first five years, and 121.5 per cent up to the present time. These per- 
centages are based on the average in each case. 

This is a very marked evidence of the approval of the patrons of 
these schools, and it is also an evidence of the firmness of their founda- 
tion. 

Information was sought regarding the situation so far as enrollment 
is concerned during the fifth year, because the first five years is likely to 
tell the story as to a new institution. In about that length of time it 
will have established itself or will have failed. 

It will be seen again that in Classes B, C and D the growth is be- 
tween 33 per cent and 40 per cent. In Class E the growth is 102 per 
cent. 

The last column shows the percentage of growth up to the present. 
The larger schools seem to have grown more rapidly. That means, of 
course, the high schools were relatively nearer of a size at the beginning 
but certain ones of them had very rapid growth. 

By way of summary, in the inauguration of a township high school 
we note that the reasons for the establishment of a township high school 
in a community are meager high school facilities and a lack of financial 
resources. The agitation for a township high school from the time of 
its proposal until it is finally voted is usually from six months to a year. 
In a large majority of cases it is less than a year, although there are 
some cases extending over a considerable period of time. The opposition 
to the inauguration of a township high school is of various kinds. A 
few general categories, however, are the position of large land holders, 
failure to understand the value of secondary education, opposition be- 
tween rival cities, and the fear of taxes. In the township high schools 
already organized these have been overcome. 

When a township high school is once organized it is clear that it 
rapidly wins the favor of the people and the opposition becomes of a 
relatively negligible quantity. This is reinforced also by the fact that 
the township high school grows in enrollment very rapidly. The people 
see its value. They patronize it and they support it. 

The fact was very clearly brought out that the township high school 
is a relatively youthful institution. The median age for the State as a 
whole is 5% years. The larger township high schools are relatively 
older than the smaller ones, as would be expected. 

It was shown that the initial bond issue was too small in size usually, 
and that people failed to see the future requirements of the school. 
Mention has been made of the rapid growth in enrollment of the town- 
ship high school. 



350 



CHAPTER XII. 



- CONCLUSION. 

It is the purpose of the present chapter to gather together all of the 
salient facts which have appeared in the preceding discussion and the 
conclusions which have been drawn from them into a single discussion 
covering the entire field of secondary education in the State of Illinois. 
To that end it will be necessary to review the various chapters one by 
one and then integrate the discussion into a single whole. 

We find in the Second Chapter that the organization of the first 
township high school at Princeton provides very significant material in 
view of the development of township high schools since that time. It 
was definitely the purpose of the people of Princeton and vicinity to 
organize a community high school, recognizing that the school situation 
was a single one and that all of the people living in the immediate en- 
virons of the city of Princeton naturally belonged together in the organ- 
ization of such a school. 

The discussions of the later chapters have shown that this is the 
greatest need in the State of Illinois, namely, the organization of the 
territory of the State into high school districts whose boundaries shall 
be determined by social considerations united with certain determining 
factors dependent upon the geographical configuration of the neighbor- 
hood and its facilities for transportation. 

Another very significant feature in the organization of Princeton 
Township High School was the fact that it was divided not on the basis 
of an 8/4 organization, such as that upon which most of the high schools 
of the State are organized. It was divided on the basis of elementary 
school and advanced work. The first examination of Principal Boltwood 
was for the purpose of determining who should be admitted to the town- 
ship high school and who retained in the organization or called advanced 
students. The fact is in the history of the school that it has throughout 
its career retained the eighth grade in the high school organization as a 
part of its legitimate work. The strong movement now noted in educa- 
tional circles toward the organization of junior high schools makes this 
significant, and the organization of township high school districts com- 
prising the entire territory of the State would provide an opportunity for 
the organization of junior high schools on a very satisfactory basis. 

The special charter which was granted to Princeton in 1867 seemed 
to fit the needs of such a community so well that most of its provisions 
were included in the general township high school law in 1872. Since 
that time many township high schools have been organized throughout 
the State on the basis of this law as exhibited in the main body of the 
discussion heretofore presented. This general high school law provides 



251 

that the high school shall have a relatively large amount of territor}^ 
supporting it. Its first advantage then is that of providing a wide basis 
for taxation. This added facility in taxation insures the maintenance of 
the high school on an adequate financial basis. A second advantage of 
the township high school is, as noted above in connection with the 
discussion concerning Princeton, that it covers the territory and com- 
munity naturally tributary to the high school. The high school thus is 
the center of a natural social unit, and this social unit should be the 
real basis on which high schools, and all schools for that matter, should 
be organized. A third advantage is that it gives a proper volume of 
population for the organization of the high school itself. It was found 
in connection with studies in later chapters that there were certain ad- 
vantages accruing to those high schools which had enrollments of a cer- 
tain minimum size. This topic will come up for further discussion in 
later portions of this chapter. Another advantage of the type of organ- 
ization discussed in the Second Chapter is that it centralizes the legal 
control of the high school in a small board. In the general law this 
board is composed of five members. A fifth advantage is that this board 
together with the executive officers which it employs is able to devote its 
exclusive attention to the development of secondary education, and it is 
not distracted by giving a portion of its time to elementary problems. 
A very marked disadvantage of this type of organization remains to be 
noted. By it the school system is broken into two independent parts. 
There is nothing in the figures heretofore exhibited to indicate that this 
division of control decreases efficiency. This is probably due to the fact 
that the high schools in cities having a unified control are as separate 
from the elementary schools as the township high schools. However this 
separation ought not to be the case in either group of schools. The artic- 
ulation of elementary and secondary schools is one of the problems in 
education at the present time. The unity of courses of study extending 
through the elementary schools and the high school; provisions for 
accelerating the progress of individual pupils through the schools; 
economical management of buildings, equipment and supplies; efficient 
distribution of the work of teachers; all these are items which ought to 
be handled with greater efficiency in a single system than in a divided 
one. The fact is they are not well handled in either. The junior high 
school movement has great promise of solving some of these problems and 
of cementing together the elementary and secondary schools. 

However there are two compelling reasons for continuing the pres- 
ent process of increasing the number of township high schools. First, 
this process should be continued until the State "provides financial re- 
sources for all high schools equal to the provision now made for town- 
ship. Second, , very definite progress is made by the organization of 
township high school districts of large area. Each district may include 
a number of cities, villages and rural communities or it may include 
a central town and the surrounding country or it may be entirely rural. 
In any case after it is organized and after the passage of time it Isecomes 
solidified into a community which becomes accustomed to working to- 
gether for educational interests. At some future time this community by 
law can be joined together into a single system under a unified control. 



352 

If this unification or establishment of large districts were under- 
taken at the present time in the case of the elementary schools as well as 
the high schools it would result in a larger number of relatively small 
units. Every small neighborhood would feel that it required an entire 
school system. In the township school type of organization a larger 
unit is more likely to be created. Meantime no serious results will come 
as none have so far come from the lack of articulation growing 
out of the divided control since educators have not yet solved the 
problem of articulation between the elementary schools and the high 
schools. 

With these conclusions based upon the organization of the school 
itself after an examination of its legal constitution, we must next pass 
to a study of the actual accomplishments of the township high school 
as this is exemplified in the practice of the schools themselves. This 
purpose is accomplished in two ways. First, by the preparation of a 
table which epitomizes the statistics shown in the various chapters. Sec- 
ond, by an examination of the conclusions reached in each chapter. 

According to the first of these plans, Tahl'e XCVIII was compiled, 
and is a recapitulation of the statistics worked out in the body of this 
investigation. 

The first vertical column in this table shows the chapters from 
which the material is drawn. The second vertical column shows the num- 
ber of the table in which the statistics are exhibited. The third vertical 
column displays the items on which the statistics are furnished. The 
fourth vertical column shows the unit in terms of which the statistics are 
figured. The vertical columns which follow are the usual classifications 
of the schools into City High School and Township High School, ar- 
ranged according to their size, in the manner heretofore followed. In 
the column marked "Unit" it will be noticed that the unit is a Class or $, 
or a Pupil, or whatever else may be the factor of school organization 
discussed. These units are the medians of the tables from which they 
are drawn in most cases. They are not medians in the case of per- 
centages, as that would be manifestly impossible when the percentages are 
based upon the total number of schools represented in each class and 
group. 

With this preliminary explanation it would seem that the table 
could be easily read. For example, in reading the first vertical column 
on "Sites and Buildings" it will be seen readily that City High Schools of 
Class A have a median investment of $10,000; Township High Schools 
of Class A, $18,500; City High Schools of Class B, $30,000; Township 
High Schools of Class B, $45,000, and so forth. It is very easy by this 
method to discover the relation that the various groups of schools bear 
to each other on the basis of the item under consideration, and if com- 
parison is wanted on any topic it may be found at the appropriate point 
in the table, and the table may be read horizontally, and this compara- 
tive situation stands out very definitely. 

The table is capable of an entirely difi^erent use which if anything 
is more valuable. By reading the vertical columns a complete charac- 
terization may be had of any group of high schools shown in the table. 
School authorities having in their charge a school of a certain size, 



253 



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256 

whether it be a city or township organization, can by reading the appro- 
priate column discover the relation of their own school to others in the 
State. For example, in the case of a township high school of Class C, 
it will be noted that the median investment in sites and buildings is 
$75,000, the median investment in equipment is $5,000, the total capital 
investment is $79,000, the cost of maintaining the plant is $664, and 
so on down the table. 

It will be readily seen that it is the purpose of this table to give a 
birdseye view of the schools of the State so far as this body of statistics is 
concerned. It is, of course, not designed to give a complete body of 
information since it confines itself largely to a presentation of the 
medians. In order to have this complete display of information, refer- 
ence necessarily should be made to the chapters and the appropriate 
tables where the situation is completely displayed. A warning is in place 
at this point, since there will be a tendency on the part of some to regard 
a median as representing the most desirable situation. As was said in 
a previous discussion in this investigation, a person wishing to character- 
ize a group of schools in a certain particular should examine the situation 
with the middle 50 per cent in view. If the school under consideration 
comes within the middle 50 per cent, it at least is not erratic. A local 
school situation should be discussed in detail on the basis of its local 
peculiarities, and an}^ reasons for making it vary from the usual situa- 
tion should be taken into consideration. Usually progressive school offi- 
cers will prefer in matters of expense, training of teachers and other 
items having to do with the efficiency of the school, to locate their own 
school in the third quarter, that is, between the median and the third 
quartile. 

Since- the table above mentioned has been prepared, it is not neces- 
sary to state in language the characterizations that might be made con- 
cerning the various groups of schools on the basis of this table. The table 
itself exhibits these characterizations, and it may be read across or down 
according to the needs of the reader. 

We now pass to a statement of the conclusions which have been 
reached in the preceding chapters. 

Capital investments in township high schools in all grades of schools 
exceed those in city high schools. There is also a larger expenditure for 
permanent equipment in the case of township high schools than in the 
case of city high schools. It costs more to maintain a student in the 
township high school than in the city high school. The township high 
schools are more completely .equipped in every way except one, namely, 
the library. The larger expenditure of money in the township high 
schools is due to the fact mentioned above, namely, that the board of edu- 
cation and its executive officers have more money available for this pur- 
pose and their attention is concentrated upon the single problem of 
secondary education and, hence, it is more adequately provided for in a 
financial way. The fact may well be brought out at this point also that 
the people will gladly support financially an educational institution if 
the financial organization is of such character that they can manage it. 
The obvious lesson is that the State should be so organized as to make 
the funds available. 



A similar situation is evident upon an examination of the finances 
of tlie schools. The expenses increase directly as the enrollment. Town- 
ship high schools cost more than city high schools. This greater cost 
•is due to the greater equipment provided, the wider range of eleetives 
offered and the greater amount of vocational work provided. 

It was found in the study of tlie capital investment and also in 
current finances that there is a greater deviation in the ease of township 
high schools than in city high schools, in fact, there is greater deviation 
in township high schools than in city high schools throughout the study, 
also that in the township high schools there is greater tendency for 
variation in courses of study, in methods and practice in teaching, in 
other words, township high schools are more willing to experiment. This 
is probably due to the fact that executive officers are free in the formula- 
tion of their policies and have better opportunity of handling new 
enterprises in a financial way. 

In an examination of the course of study it was found that the 
larger the high school the smaller the number of prescribed units laid 
down, and the larger the high school the larger the number of eleetives 
offered. The larger high schools provide wider opportunities for voca- 
tional work. As to the distinction between township high schools and 
city high schools, it was shown that the township high schools because of 
their greater financial resources provide a larger amount of vocational 
work. Corollary to the fact noted above wherein the township high' 
schools show greater costs in every particular, it is evident in the matter 
of the course of study that they provide better opportunities for the 
students in a vocational way and in the form of a wider range of 
eleetives. 

It was found in the study of the executive officers that the largest 
proportion of principals and superintendents have collegiate degrees. 
It was found also that the total number of years of school experience 
on the part of principals increases with the size of the school. This is 
true also with reference to his high school experience and his tenure of 
office in his present position. The high school nrincipal has a longer 
teaching experience, a longer high school experience, and a longer 
tenure of office in his present position, in the township high schools than 
in the city high schools. It was noted in this connection that the high 
school principalship is entirely too transient and that remedial legisla- 
tion of some sort should be undertaken to obviate this evil. It is clear 
that the policies of any school will be more stable and satisfactory if the 
position of the principal is more secure. The salaries of township high 
school principals are markedly greater than the salaries of city high* 
school principals, and, in fact, are greater than the salaries of city 
superintendents who have in their systems of schools a high school of a 
corresponding size. The salaries of to'^niship high school principals are 
greater than the salaries of the principals of the schools of the ISTorth 
Central Association. 

In the study of the teachino- population it was found that the larger 
the school the greater the academic training of the teachers employed 
in it. On the whole, however, the experience of the teachers in the State 

—17 I H S 



2oS 

is pathetically short. Their experience in the high school and their 
tenure of office in their present position is ridiculously short. The 
teachers in the larger schools teach a smaller number of periods per day 
and a smaller number of subjects. As regards a comparison, township 
high school teachers have a greater academic training, they teach a 
smaller number of classes per day and a smaller number of subjects than 
city high school teachers. The fact was brought out also that 'about 40 
per cent of the teaching positions of the State are occupied by men, a 
relatively large proportion, but that tliQ amount of money paid to the 
men teachers was almost half of the total amount, due to the fact that 
the salaries of men are higher than those of women. The salaries paid 
to township high school teachers are greater than those paid to city 
high school teachers. 

In an examination of the time units in the various schools it was 
noted that they are relatively uniform. The number of recitations in the 
daily program, the number of 40-minute periods, and the amount of time 
spent in the various periods is practically the same. There is a smaller 
number of tuition pupils coming to the township high schools than to 
the city high schools, due to the fact that the township high schools 
cover the neighborhood naturally tributary more completely than do the 
city high schools. The township high school has in its enrollment a 
smaller number in proportion to the elementary enrollment of its under- 
lying districts than the city high school. It has a smaller enrollment in 
proportion to the eighth grade population of its underlying districts, 
and a smaller enrollment in proportion to the population under twenty- 
one in its underlying districts. All of these conditions are due to the 
fact that it covers a wider territory and transportation is more difficult. 

All of the factors so far discussed must necessarily have a bearing 
upon the efficiency of the school. The final test of the efficiency of a 
school, however, is in the character and the resulting initiative and moral 
ability of the students coming from the school. There are no adequate 
tests for these values so far in the science of education. Probably the 
most significant measure we have is the performance of the graduates of 
these various schools in the colleges and universities to which they go. 
Because of this fact the study recorded in Chapter IX was undertaken. 

It was found in this chapter that a larger percentage of graduates 
of city high schools fail in one or more courses in the University of 
Illinois than graduates of township high schools, that in tlie number of 
courses failed there was almost an equal percentage of courses failed 
by students from the township high schools and students from the city 
high schools, there being an advantage slightly in favor of the city 
high schools of .15 of one per cent. The median average in scholarship 
is in favor of the township high schools. The township high 
schools have the largest percentage whose averages fall below 70. In 
Classes A, B and C, that is, the smaller schools, they furnish the smallest 
percentage of those who fall below 70. In Classes D, E and F the 
township high schools furnish the largest percentage of those who fall 
below and also the largest percentage of those Avho are above 85. 

The manifest conclusion here is that on the whole the township 
high schools have furnished a better grade of students to the University 



259 

of Illinois than the city high schools. The oiitstanding fact, however, 
is that the township high schools are markedl}' superior to the city high 
schools so far as these university grades are concerned Avhen they have 
underlying districts with well graded schools. 

It was found in particular in Chapter 10 that the experience of the 
State in the organization of the high schools on this basis furnishes an 
adequate foundation on which to organize high school districts on the 
basis of social and geogi-aphical situation disregarding political boun- 
daries. The school law of 18T2, as heretofore noted, provides eight 
different forms of combination for districts and portions of townships. 
Since these high school districts have been formed in a great variety 
of sizes and shapes, they have furnished an adequate demonstration of 
the fact that schools can be administered without attention to these 
boundary lines. 

Out of this situation three rather definite principles can be out- 
lined for the organization of a new high school district. 

1. There should be a scliool organization of sufficient size to give 
the best results educationally. An examination of the teaching situa- 
tion and the course of study will show that so far as the course is con- 
cerned it can best be administered in a high school of not less than 200 
in size. In a high school of from 200 to 300 approximately one-half 
of the work offered may be elective, thus providing properly for the 
natural difference existing among children. In schools of this size it 
is relatively easy to provide two years of work in the vocational field 
along several lines — commercial, technical, agricultural, and so forth. 
It is in this group of schools where the first advantages appear so far 
as size is concerned in the matter of careers of graduates in the uni- 
versity. At this point in size a markedly small number of high school 
graduates fail in one or more courses, and it is in cases of schools of this 
size where a much smaller percentage of courses are failed in the uni- 
versity. Consequently a strong effort sliould be made to incorporate 
districts which will include at least 200 pupils. Since, however, it 
will be necessary to incorporate some districts which will have less than 
this number a great effort should be made that no district will be so 
small in population as to have a high school of less than 100. High 
schools of less than 100 are the least efficient of all and are very ex- 
jDensiA'e to operate. The method of determining the number of minors 
to include in a high school district to predetermine a high school of 
certain size is described in Chapter 8. 

2. Another very definite principle which should stand out in the 
organization of new high school districts is the provision of an ade- 
quate taxing basis for the support of the school. It was pointed out 
previously on this point that the present legal provisions for the sup- 
port of schools were established when elementary schools were practlc- 
tically the only schools in mind when the provisions were made. Since 
that time the whole system of secondary education has been built up 
without additional facilities being provided for it in a financial way. 
The township high school provides the most successful method of 
meeting this added financial burden, but this is never provided for 
satisfactorilv unless the area taxed is sufficientlv wide. 



260 

3. A third principle is the outlining of the high school district 
in such a way as to take care of problems of transportation. The school 
should be accessible. In order that this may be done the configuration 
of the territory and its geographical situation must be studied. Where 
pupils live at a distance free transportation should be provided at 
public expense. 

It was found in the study of this matter of underlying districts 
that in the schools of 1 to 100 enrollment the largest proportion of the 
student population came from country and village schools. The pupils 
coming from country and village schools are also a large factor in 
township high schools ranging in enrollment from 100 to 200. In high 
schools larger than 300 the pupils usually oome from well graded ele- 
mentary school district?. 

Two factors were found to be operative in inducing people to organ- 
ize township high schools. One was the meager high school facilities 
already possessed, and the other the inadequate financial resources of 
such high schools. The organization of a township high school pro- 
vided better high school facilities by way of nroviding larger financial 
resources. 

It was found that the opposition to the organization of township 
high schools was of various kinds, namely, opposition of land holders, 
failure to understand the value of secondary education, the opposition 
arising from jealously between rival communities, and the fear of 
additional taxes. It was found that after the high schools were in 
existence for some time that this opposition very largely disappeared. 
The school rapidly wins the favor of the people and the opposition be- 
comes a relatively negligible quantity. This is also reinforced by the 
fact that a township high school grows in enrollment very rapidly. The 
fact was brought out that the township high school is a relatively young 
institution. It was found that in the organization of the township 
high school the initial bond issues were practically always too small. 

The net conchision in a single statement that might be drawn 
from the foregoing study is: 

1. That a school increases in efficiency as it increases in size. 

2. That the township high school is more efficient than the city 
high school because of the fact that this particular type of organization 
permits the accumulation of larger financial resources and, hence, 
provision of all kinds of advantages. Furthermore, that this type of 
organization centers attention and study upon secondary problems to 
the exclusion of others. 

3. Those township high schools are most efficient which have well 
organized underlying elementary schools. 

A final word of encouragement for the reorganization of the schools 
of the State may be found in the fact that although there is considerable 
opposition to the organization of the township high schools in their 
inception this opposition vanishes rapidly as the people have experience 
with the new institution. On the basis of this experience we should be 
encouraged to reorganize all the territory of the State into high school 
districts, being assured that the people will be in support of this move- 
ment when the new organization is once under way. Similarly, all kinds 



261 

of schools can be organized into larger units and thereby increase their 
efficiency and at the same time retain the supiDort of the people. 

PEOGEAM OF LEGISLATION. 

In a consideration of this topio based upon the preceding conclu- 
sions it must be kept in mind that what is said now is largely opinion 
although it is hoped well authenticated opinion, whereas the preceding- 
statements have been based upon an adequate basis of fact. 

The interests of the State so far as high school education is con- 
cerned are now in jeopardy. An emergency exists and a new program 
must be formulated. The fact is that the State is completely organized 
so far as the University is concerned and so far as elementary educa- 
tion is concerned. The entire State is a single school district for the 

* . 

support of the University of Illinois. The entire State is divided up 
into elementary school districts for the support of elementar}^ schools. 
A portion of the State is organized into districts which support high 
schools. As in the case of the University and the elementary schools, 
the entire State should be included in high school districts. 

The problem that now confronts the educational leaders of the 
State and the General Assembly is the best method of accomplishing 
this purpose. The experience of the State so far as its township high 
schools is concerned ought to be pertinent in the solution of this prob- 
lem. In the first place, small villages and in some cases more separated 
communities have been welded together in the support of a township 
high school which is in every respect efficient. When such a town- 
ship high school district was organized jealousy in the community was 
rife. As experience demonstrated to the people the benefits of the 
local high school these jealousies have disappeared. It would seem then 
that the local preferences in the organization of high school districts 
should be totally disregarded and that the central principle determining 
its organization should be the efficiency of the high school. 

On the basis of the three principles discussed above it is true 
that there will be certain districts in the State that it would be impos- 
sible to so weld into a high school district because of the fact that the 
population is so widely scattered. In such cases where it is manifestly 
impracticable to locate a high school, a high school district should be 
organized for the purpose of paying the tuition of those pupils who have 
an ambition to secure a high school education by attending high school 
outside the districts in question. It is also true that there is territory 
adjacent to large city districts which could not easily be organized into 
township high school districts. This territory is naturally tributary 
educationally as well as commercially to the center of population which 
it surrounds. In this case it would be difficult to combine the territory 
with the city district mentioned because of the fact that ihe outside 
population would not be willing to bear their portion of the expense of 
supporting the elementar^^ schools. On the other hand, it would be 
unwise to organize additional high schools because of the fact that 
there would not be a large enough numl^er of people for such a high 
school. In this case, as in the other, the obvious thing to do is to orsran- 



262 

ize the district for the purpose of paying tuition. With these tAVO pro- 
visions for unorganized territor}^ it ought to be possible to organize all 
the territory of the State of Illinois into high school districts and thus 
close up the last great gap in the free education of the people. 

One more thing remains to be discussed, namely, the articulation 
of the high school with the underlying elementary schools. It was noted 
in the preceding study that the gradiiates from those other schools hav- 
ing a large rural and village constituency did less efficient work in the 
University of Illinois. The best students in the university came from 
township high schools of large financial resources and having well organ- 
ized elementary school districts contributing to them. There is not in 
this body of statistics anything showing that the articulation between the 
high school and the elementary school is more perfect in the case of city 
high schools than in the case of township high schools. A priori con- 
siclerations lead one to assume that the articulation between the high 
school and the elementary school is more satisfactory between city high 
schools and their underlying schools. It would be interesting to gather 
statistics bearing upon this point, but there is not enough difference 
to make a showing in the statistics regarding the career of scholarship in 
the University of Illinois. A consideration of this fact, however, should 
not induce us to underestimate the value of trying to secure proper 
articulation between elementary schools and high schools. If this is 
done, all sorts of devices for securing cooperation might be put into 
effect, such as the readjustment of courses, the study of the harmonious 
selection of text books, the training of the teachers as a. part of a single 
body of instructors, the organization of junior high schools, and so 
forth. Undoubtedly Avhen proper methods of articulation have been 
worked out it will he found that the line distinguishing the elementary 
and high school work Avill not be sharply drawn, but the work of the 
one will gradually merge into the work of the other and the school 
system will actually be one in spirit and operation as well as in name. 
However, the best immediate step to take is not to organize consolidated 
districts Avith a high school at the top of the system. This will inevit- 
ably result in the organization of districts too small to secure the best 
results. The best plan is to build upon the evolution of the high schools 
in the State as it has so far progressed. Organize high school districts 
covering a territory sufficiently Avide and a transportation system suffi- 
ciently compact and a body of population sufficiently large to secure the 
kind of higli school Avhich will giA^e the greatest efficiency,. i\.fter these 
more efficient high schools are organized and thoroughly established in 
the State through a series of years of experience then later readjust- 
ments may unite all the elementary schools and the high schools into 
a single educational institution under a centralized management. EA^ery 
locality in the State then would haA^e a complete system of education 
from the first primary gTade through the high school, the high school 
being in direct contact with the University. We Avould then haA^e a 
complete system of American education. 



2G3 



APPENDICES. 



APPEXDIX A. 

Special Cliarter of the Princeton Township High School District upon 
which the General Township High School Law of 1872 was Modeled. 

An Act to Incorporate tlie Princeton High School District. 

SE(yriox 1. Be it enacted hy the People of the State of Illinois, rep- 
resented in the General Assenihlij, That all the territory now included 
within the boundaries of the township of Princeton, in the county of 
Bureau and State of Illinois, together with such territory as may be 
hereafter added thereto, be and is hereby established a common high 
school district, to be known as the "Princeton High School District." 

Sec. 2. The government, care and superintendence of the public 
high schools within said district, and of the funds and estate, both real 
and personal, belonging to, and which may. be hereafter acquired by or 
conveyed to said district, shall be vested in a board of education of said 
higli school district. 

Sec. 3. The following named persons, to wit: John H. Bryant, 
Flavel Bascom, Jacob Critzman, Mathew Trimble and George D. Ide, 
shall compose the first board of education of said high school district, 
until their successors are duly elected and qualified as hereinafter pro- 
vided. It shall be the duty of said persons or a majority of them, to as- 
semble within sixty days after the passage of this Act, at the court house 
in said Bureau County, and organize as such board of education by. 
electing one of their number president, and one as" olerk of said board. 
They shall appoint a treasurer of said high school district, and shall 
have all the powers, and be governed in all other respects by the provi- 
sions of this Act, as far as the same may be applicable. The said per- 
sons, or a majority of them, shall have the power to fill vacancies in their 
number occasioned by declination, disqualification, resignation, death, or 
removal from said high school district.. 

Sec. 4. The persons composing said board of education, provided 
for in the third section of this Act, shall hold their offices as follows : 
Two of them until the first Tuesday of June, 1868', two until the first 
Tuesday of June, 1869, and the fifth until the first Tuesday of June, 
1870. The respective terms of office of the members of said board ap- 
pointed and provided for as aforesaid, shall be determined by them at 
their first meeting by casting lots. 

Sec. 5. On the first Tuesday of June. 1868, and on the first Tuesday 
of June annually thereafter, an election shall be held to elect successors 
to those members whose terms of office are then expiring, and to fill all 
vacancies, if any, occurring in said board, during the preceding year. 



2G4 

The persons elected at such annual elections shall hold their ottices for 
three .years, or until the expiration of the unfinished terms which they 
have been elected to fill, as the case may be. 

Sec. 6. The said board of education, or the remaining- members 
thereof, shall have the power to fill, until the ensuing annual election in 
said high school district, all vacancies in said board occasioned by death, 
resignation, disqualification, failure to elect, or removal from said dis- 
trict, and to fill by appointment, vacancies among the officers of said 
hoard occasioned by any of the causes aforesaid. The members of said 
board, and the treasurer appointed by them, shall, previous to entering 
upon their official duties, take an oath, in addition to those prescribed 
by the Constitution of this State, faithfully and impartially to discharge 
the duties of their respective offices to the best of their abilities. 

Sec. 7. Notice of such annual elections shall be given by the clerk 
of said board by posting written or printed notices of the time, ^Dlaces 
and objects of such elections in three of the most public places in said 
district, at least ten days before such elections are held, and also by j^ub- 
lishing a similar notice in some newspaper published in said district, by 
one insertion at least one week previous to the day of election. Said 
elections shall be held at the usual place for holding general elections in 
said township, and shall be by ballot. The president of said board, and 
two members thereof, to be selected by said board, shall be judges, and 
the clerk of said board clerk of such elections; but if any of said officers 
shall fail to attend, or refuse to act, the electors assembled shall, viva 
voce, choose three judges and a clerk of the election. A poll book shall 
be kept by the clerk, registering the names of the voters, and the persons 
receiving the highest number of votes shall be declared elected. In case 
of a tie in any election, the judges of election shall decide the same by 
casting lots on the day of the election. Elections shall be opened at the 
hour of 10 :00 o'clock a. m., and close at the hour of 5 :00 o'clock p. m. 
The judges and clerk shall certify to the board of education the names 
of the persons so elected members of said board, the term for which they 
were elected, and the number of votes each person A^oted for received, and 
shall return their certificate and said poll book to the said board within 
ten days after such election. 

Sec 8. Said board of education is hereby created a body corporate 
and politic, by the name of the "Board of Education of the Princeton 
High School District," and that name may sue and be sued, plead and 
be impleaded, answer and be answered unto, in all courts and places, con- 
tract and be contracted with, and have perpetual succession and a com- 
mon seal, and the same may alter or change at pleasure. Said board 
may exercise, in the furtherance of the objects contemplated by this Act, 
all the powers conferred on the school trustees of toAmships or boards of 
directors of school districts, by any law now in force, or that may be 
hereafter enacted. Said board shall have power to receive and hold, in 
their said corporate name, all real and personal property that may be 
conveyed, given or devised to it for said district, and in the said corporate 
name to dispose of and convey the same, for the benefit of said district. 
All conveyances of real estate made by said board shall he executed and 
acknowledged by the president of said l-ionrd. anrl att(^siod l\v the corpor- 



265 

•ate seal and by the signature of the clerk. Provided, that all such con- 
veyances sliall be authorized by a resolution of said board: And, pro- 
vided, further, that all sales and conveyances of school houses, buildings 
and grounds appurtenant thereto, shall be first determined by a majority 
of the votes cast by the electors of said district, upon the submission by 
said board by the question of said sale at an annual election, due notice 
having been first given as provided in section 7 of this Act. 

Sec. 9. Said board of education shall have the following additional 
powers : 

First — It shall have power to establish, maintain and regailate a 
high school, with the necessary, departments, within said district. 

Second — To prescribe, by regulations, the qualifications for admis- 
sion into said high school and its respective departments, of persons re- 
siding in said district, free of charge for tuition therein, and also to pro- 
vide for the admission into the same of persons residing without said 
district, upon such terms and payment for tuition as said board shall 
regulate. 

Tliird — To have the custody and control of all high school property 
in said district. 

Fourth — To erect, hire or purchase buildings suitable for the pur- 
poses of such high school and its necessary department. 

Fifth — To buy or lease sites for such high school and its depart- 
ments, with its necessary grounds. 

Sixth — To purchase, lease, control and improve play grounds or 
parks adjacent to such high school or its necessary departments. 

Seventh — To furnish said high school and its departments with 
necessary fixtures, furniture, books, apparatus and libraries, and to pro- 
vide for the proper care, protection and maintenance of the same. 

Eighth — To employ teachers, determine their duties and fix the 
compensation to be allowed them from time to time, and at any regular 
or special meeting, all the menibers of said board being present at such 
special meeting, to dismiss such teachers or any of them, for gross im- 
morality, incompetency, or other adequate cause. 

Ninth — To direct what studies and branches of learning shall be 
taught, and Avhat text books shall be used in said high school and its 
several departments. 

Tenth — To establish departments or different grades in said high 
school, and to make all necessary rules and regulations "for the admission 
and advancement of applicants and pupils, and for the government of 
said high school and its departments ; to suspend or expel pupils guilty 
of refractory, disobedient or immoral conduct, or possessed of any in- 
fectious or contagious disease. 

Eleventh — To appoint agents and servants to execute any matter 
conducive to the interests of said high school district, consistent with this 
Act, and for their services to pay them such reasonable compensation 
as said board shall fix. 

Ttvelfth — For the purpose of building a high school and other school 
buildings, and additions thereto, for the nse of said high school district, 
and of repairing and improving the same, and purchasing real estate for 
such liuildings, libraries, apparatus, and other objects contemplated by 



■266 

this Act, or of paying iiulebtedness contracted therefor, it shall be lawful 
for said board to borrow money, at a rate of interest not exceeding 10 
per cent per annum, and to issue bonds therefor in sums of not less than 
one hundred dollars, which bonds shall be signed by the president and 
attested by the clerk and seal of said board. 

Sec. "io. Said board of education shall have full power, and it shall 
be its duty, to determine the amount of money needed to maintain said 
high school and its department, and to pay all expenses of said district, 
of every description, for each school year, and to determine the amount 
of money needed at any time for the purpose of purchasing, leasing or 
improving grounds for said high school objects, or of purchasing, leas- 
ing, building, finishing, repairing, improving or extending their said 
liigh school houses, or of procuring furniture, libraries and apparatus, or 
of paying the indebtedness of said high school district. Said board shall 
have power and authority to levy taxes upon all the taxable real and 
personal property in said district, for the purpose of raising said amounts 
of money so determined by it. Said board shall designate the amount 
of money required for the maintenance and expenses of said high school 
and its departments for each school year, as aforesaid, "school tax ;" and 
the amount required for any other purposes specified in this section, said 
board shall designate "school house tax." It shall be the duty of said 
board to ascertain, at any meeting prior to the second Monday of Sep- 
tember, annually, the rate per cent upon the assessment of real and per- 
sonal property in said high school district for State and other purposes 
for that year, needed to be levied to raise the amount of "school tax" 
determined upon, and what rate per cent upon the same will be needed to 
raise the amount of "school house tax" determined upon; which rate or 
rates shall be certified by the president and attested by the clerk of said 
board, and returned to the clerk of the county court of said Bureau 
County on or before the second Monday of September, annually. The 
certificate or certificates so made may be in the following form, as near 
as may be : 

The Board of Education of the Princeton High School District re- 
quires the rate of ]3er cent on the dollar to be levied on the 

taxable property of said district, for the year , for the pur- 
pose of school tax, (or school house tax, as the case may be). 

Dated this dav of " 18 

A B President. 

Attest: C D Clerk. 

It shall be the doty of said county court to extend the tax or taxes so 
certified to him in one column, under the name of "high school tax." ac- 
cording to said rate or rates upon the book for that year of the collector 
of taxes for the territory embraced in said high school district: and the 
said taxes shall be collected as other taxes are or may be, and, when col- 
lected, shall be paid over, on demand, to the treasurer of said district. 
The said county clerk and collector shall receive for their services the 
same compensation as noAv is or may be provided for extending and col- 
lecting district school taxes. It is, however, provided that the rate to be 
levied in any one year for school house tax shall not exceed five per cent 
on said valuation. 



267 

Sec. 11. Said Board of Education shall hold regular meetings once 
each month, at such time and place as shall be designated by the rules of 
said board. Said board shall make, from time to time, all needful rules 
and regulations for its own government and that of all officers, teachers 
and agents appointed by said board, and for the custody, control, care 
and management of the school's fund and property belonging at any time 
to said district. 

Sec. 12. Said board, shall, annualW, at its stated meeting in Ji\\j, 
elect a president and a clerk, both of whom shall be members of said 
board, and who shall hold their offices for one year. Said board shall 
also, at said meeting, appoint a treasurer of said high school district, who 
shall not be a member of said board, and who shall hold his office during 
the pleasure of said board. The said record shall be signed by the 
president, and attested by the clerk; and the same or certified copies 
thereof, under the hand of said "clerk and the seal of said board, shall be 
prima facie evidence of the proceedings of said board in all courts and 
places. Said board may adjourn from time to time, and the president 
or any two members thereof, may call special meetings, at such time ancT 
in such manner as the rules of said board shall provide. Three members 
of said board shall constitute a quorum for the transaction of business. 
In the absence of the president or clerk, the board may, appoint a presi- 
dent or clerk pro tem. 

Sec. 13. Said Board of Education may make such rules concerning 
the duties of the treasurer and the disposition of the funds and other 
property in his custody, as are not inconsistent with this Act. 

Sec. 14. The treasurer of said high school district shall execute, 
within ten days from his appointment, a bond, with two or more good 
and sufficient sureties, to be approved by said board, which bond shall be 
filed and recorded by the clerk, shall be made payable to said board in a 
penalty to be fixed by said board, and conditioned that he will safely 
keep, and, from time to time, pay over, upon the order of said board, 
all moneys and effects which shall come into his hands or under his con- 
trol as such treasurer, and will deliver oA'er to his successor in office, all 
books, papers, securities, property and moneys remaining in his hands, 
and belonging to said district, and will faithfully discharge the duties 
of his office according to law, and the rules made by said board from 
time to time. It shall be the duty of said treasurer to receive and keep 
all moneys due and payable to said district. He shall keep an accurate 
account of all moneys received and paid out by him, in a record to be 
kept for that purpose, and shall pay out no moneys or other effects except- 
ing on the order of said board. He shall retain vouchers for all moneys 
=n paid out. and shall receive from all moneys paid out on such orders, 
a fee, to be fixed by said board, not exceeding two per cent. He shall 
settle his accoimts with said board at the August meeting in each year, 
and shall produce his books and papers to said board whenever required 
so to do. All orders on said treasurer shall state for what purpose issued, 
shall be signed by the president, and registered and attested by the clerk 
of said board. 

15. Xo person shall be eligible to serve as a member of said board, 
or to vote at any election provided for in this Act, or to act as judge or 



268 

clerk of such election, uuless he shall be a resident of said district, and 
have the qualifications of an elector at township elections. 

Sec. 16. The said Board of Education is hereby made the succes- 
sors in office of the directors of the high school district, organized in the 
said township of Princeton, and known by the name of "The High School 
District of Princeton ;" which said last named district is hereby merged 
in the high school district created by this Act. All high school build- 
ings, jDroperty and real estate belonging to said high school district of 
Princeton, are hereby conveyed to and vested in said Board of Education 
and its successors in office, in fee simple, for the purposes contemplated 
by this Act. It is hereby made the duty of the trustees of schools of 
said township to execute and deliver to said Board of Education, all con- 
veyances requisite to perfect, in said Board of Education, the title to all 
real estate now held in trust by said trustees for said high school district 
of Princeton. 

Sec. 17. The said Board of Education shall have the power, and is 
hereby directed, to ratify, assume and carry out all contracts made and 
entered into by said directors, on behalf of said district, for building and 
other school objects, and, for the purpose of executing such contracts, 
shall levy taxes and issue bonds as provided in this Act. 

Sec. 18. Nothing in this Act shall be construed as affecting the 
present organization of the common school districts in said township, or 
the control and conduct of the same under the general laws of this 
State. 

Sec. 19. This Act shall be deemed a public Act, and shall be in 
force from and after its passage. 

Approved February 5, 1867. 



269 



APPENDICES. 



APPENDIX B. 



THE GENERAL TOWNSHIP HIGH SCHOOL LAW. 

The general township high school law was first passed by the Gen- 
eral Assembly in 1872, and has been in successful operation for a 
quarter of a century. From time to time the law was modified as 
necessity seemed to indicate. It was incorporated in the codification of 
the school law which was enacted in 1909. After this date it was fur- 
ther changed by amendment in relatively unimportant ways until 1917, 
when far reaching amendments were enacted which were designed to 
develope real community high schools on the township high school plan. 
The law as amended in 1917 is given in Appendix E. The law as it 
stood just preceding this last far reaching amendment is given below. 
In this form it comprises Sections 8.5 to 97 inclusive of the School Lav/ 
as amended by the Forty-ninth General Assembly. 

Sec. 85. Upon petition of fifty or more legal voters of any school 
township, filed with the treasurer at least fifteen days preceding the reg- 
ular election of trustees, it shall be the duty of the treasurer to give 
notice of an election to be held at the next regular election of trustees 
for the purpose of voting "for" or "^against" the proposition to establish 
a township high school. Notices of such election shall be posted in at 
least ten of the most public places throughout the township, for at least 
ten days before the day of such regular election, and may be in the 
following form : 

NOTICE OF ELECTIOX. 

Notice is hereby given that on Saturday, the day of April, 

1 , an election will be held at for 

the purpose of voting "for" or "against" the proposition to establish a 

township high school for the benefit of township number range 

number The polls will be opened at o'clock . . . .M. 

A B 

Township Treasurer. 

The trustees of schools shall conduct the election, convass and de- 
clare the result. The ballots shall be in substantially the following form, 
to-wit : 



For the establishment of a township high school 



Against the establishment of a township high school 



270 

The voter shall make an X or cross mark in the square following 
and ojDjoosite the proposition favored^ and the ballot shall be so counted. 
(As amended by an Act approved June G, 1911.) 

Sec. S-Q. If a majority of the votes cast shall be in favor of estab- 
lishing a township high school^ it shall be the duty of the trustees of 
schools to call a special election on any Saturday within sixty days, for 
the purpose of electing a township high school board of education, to con- 
sist of five members, notice of which election shall be given for the same 
time and in the same manner as provided in the election of trustees of 
schools. The members elected shall determine by lot, at their first meet- 
ing, the length of term each is to serve. Two of the members shall 
serve for one year, two for two years, and one for three years from the 
second Saturday of April next preceding their election. At the expira- 
tion of the term of office of any member or members, a successor or 
successors shall be elected, each of whom shall serve for three years, 
which subsequent election shall be held on the same day and in the same 
manner as the election of trustees of schools. In case of a vacancy, the 
board shall call an election without delay, to be held on any Saturday. 
Within ten days after their election the members of the township high 
school board of education shall meet and organize by electing one of 
their numlier president, and by electing a secretary. It shall be the 
duty of such high school board of education to establish, at some central 
point convenient to a majority of the pupils of the township, a high 
school for the education of the more advanced pupils. 

Sec. 87. Two or more adjoining townships, or two or more adjoin- 
ing school districts, whether in the same or different townships, may, 
upon petition- of at least fifty legal voters in each of the townships or 
school districts, or if a school district contains fewer than 150 voters, 
then by at least one-third of the legal voters of such district, and upon an 
affirmative vote in each of such townships or districts, at an election held 
pursuant to the provisions of section 85 of this Act, establish and main- 
tain in the manner provided for toAvnship high schools, a high school 
for the benefit of the inhahitants of the territory described in such 
petition. 

Sec. 88. The inhabitants of any territory composed of parts of ad- 
joining townships, who are now maintaining a high school and who have 
elected a board of education, may create such territory into a high school 
district by a petition signed by fifty legal voters of such district and an 
affirmative vote in such district, and may elect a board of education 
therefor, as in other high school districts. When part of a township has 
been included in a high school district pursuant to any of the provisions 
of this Act. the remainder of such township not included in any high 
school district, shall constitute a township for high school purposes. 

Sec. 89. Any school district having a population of two thousand 
(2,000) inhabitants or more may, in the manner herein provided for 
establishing and maintaining- a township high school, establish and main- 
tain a high school for the benefit of the inhabitants of such school dis- 
trict, and elect a board of education therefor with the same powers con- 
ferred on township high school boards of education. The territory of 



/v ( i 

such district when so organized for high school purposes shall constitute 
a high school district for high school purposes distinct and separate from 
the common school district having the same boundaries, and the high 
school board of education of such high school district shall have the 
same power to levy taxes and establish and maintain high schools as 
townshijj high school boards of education organized under this Act 
possess, and such taxes shall be in addition to the taxes authorized to be 
levied by section 189 of this Act. All school districts which have here- 
tofore organized under this section, elected a high school board of educa- 
tion, and are maintaining a high school, shall be regarded as high school 
districts distinct and separate from the common school district having 
the same boundaries, shall have the same power of taxation as town- 
ship high school boards of education organized under this Act. A town- 
ship or part of a township in which there is no township high school 
may be 'annexed to an adjacent high school district organized under this 
section in the same manner as near as may be as is provided in sections 
94, 95 and 96 of this Act for the annexation of territory to a township 
in which a high school has been established. 

Sec. 90. When any city in this State having a population of not less 
than one thousand and not exceeding one hundred thousand inhabitants, 
lies within two or more townships, that township in which a majority of 
the inhabitants of the city reside shall, with the city, constitute under 
this Act a school township for high school purposes. 

Sec. 91. For the purpose of building school houses, supporting the 
school and paying other necessary expenses, the territory for the benefit 
of which a high school is established under any of the provisions of this 
Act, shall be regarded as a school district, and the board of education 
thereof shall, in all respects, have the power and discharge the duties of 
school directors, for such district: Provided, however. That in all 
elections called under the provisions of this Act for voting on any one ov 
more of the following propositions, to wit : To purchase or locate a 
schoolhouse site; to purchase, build or move a schoolhouse, or to levy a 
tax to extend schools beyond nine months, or to borrow money ; that said 
board of education shall have the power to establish a suitable number 
of voting precincts for the accommodation of voters of the district in 
which said election is held, and they shall fix the boundaries of said 
precincts, and designate one polling place in each, and said precincts 
shall be composed of contiguous territory in as compact form as may be 
for the convenience of the electors voting therein; the said board shall 
appoint two judges and one clerk for each polling place, assigning so far 
as practicable, at least one member of such board to each polling place. 
JNTotice of all such elections shall be in the form now prescribed by law 
and be posted by the said board of education in at least three of the most 
public places in each of said voting precincts at least ten days previous 
to the day of election. (As amended by an Act approved June 26, 1913.) 

Sec. 92. When any district desires to discontinue the high school, 
the treasurer, upon petition of a majority of the legal voters of the dis- 
trict filed at least fifteen days preceding the regular election of trustees 
of schools with the treasurer of such district, shall give notice of an 
election to be held on the day of the regular election of trustees, for the 



pin-pose of voting "for" or "against" the proposition to discontinue the 
township high school, which notice shall be given in the same manner 
and for the same length of time, and in substantially the same form, 
as the notice provided for in section 85 of this Act. The ballots for such 
election shall be canvassed in the manner provided for in section 85 of 
this Act. If a majority of the votes cast at such election shall be in 
favor of discontinuing the high school, the trustees of the school shall 
surrender the assets of the high school to the district fund of the town- 
ship or townships interested in proportion of the assessed valuation of 
the townships or parts of townships comprising such district. 

Sec. 93. When any township in any county under township organ- 
ization shall contain two political towns divided by a navigable stream 
as recognized by the United States, each of which sliall contain a city 
of less than one thousand or more than one hundred thousand inhab- 
itants, each town shall constitute a township under this Act for high 
school purposes. 

Sec. 94. A township or part of a townsliip in which rlifve is no 
township high school may be annexed, in the manner hereinafter pro- 
vided, to an adjacent township in which a township high school has been 
established. Upon petition of five per cent of the legal voters of the 
territory to be annexed, and of the township to which annexation is 
desired, filed with the treasurers of the respective townships at least 
fifteen days preceding the regular election of trustees of schools, the 
respective treasurers shall give notice to the voters concerned that an 
election for or against annexing the township or part of a township, as 
the case may be, will be held at the next regular election of trustees of 
schools in each township, by posting notices of such election in at least 
ten of the most public places in the territory to be annexed, and in the 
adjacent township, at least ten days before the date of such regular 
election. Such notice may be in the following form, to wit : 

HIGH SCHOOL ANNEXATION". 

Xotice is hereby given that on Saturday, the day of 

April 1, , an election will be held at 

for the purpose of voting "for" or "against" the proposition to annex for 
township high school purposes the following territory, to wit : ( Here insert 
the number and range of the township when the whole of the township 
is to be annexed, or when part of a towaiship is to be annexed insert the 

said part of said township), to township number , 

range number (Township having an established 

high school). 

The polls will be opened at o'clock ]M.. and closed 

at o'clock j\r. 

A B... 

Treasurer. 

When less than the whole of a township is to be annexed, only the 
voters in the territory to be annexed shall have the right to vote, and the 
trustees of schools shall provide a" voting place for that territory and 
the jndges and clerks of such election. 



273 

Sec. 95. If petition request the township treasurers, respectively, 
to submit such question at a special election, it shall be the duty of the 
township treasurers to call the respective elections, as provided in the 
foregoing sections for some day and hour not exceeding thirty days from 
the date of the filing of the petition,; and give at least ten days^ notice 
of the election, in which event the polls of the election shall be open in 
at least two polling places and for at least four consecutive hours, and 
the polling places in the respective townships shall be designated and 
fixed by the treasurers respectively. If a majority of the votes cast in 
the township having an established high school, and a majority of the 
votes cast in the territory to be annexed shall be in favor of the proposi- 
tion, the township or territory, as the case may be, shall be and become 
so annexed, and the property in such township or territory shall there- 
after be, subject to taxation for the support and maintenance of the 
towiislii]) high school, including the payment of any bonded indebtedness 
of such township high school, and interest tlicreon, tliereafter falling due, 
as fully and to the same extent as is provided by law for the levying of 
taxes upon property for the support and maintenance of township high 
schools. The taxes collected from such township or territory annexed 
for the support and maintenance of a township high school shall be paid 
by the officer collecting the same to the township treasurer of the town- 
ship having the established high school. 

Sec. 96. Such election shall be held in the manner provided by law 
for the holding of elections for township trustees of schools, and the 
ballots of such election shall be canvassed, and the returns thereof made 
as in other school elections. If a majority of the votes cast shall be in 
favor of the proposition, it shall be the duty of the township treasurer of 
the township which is annexed, or part thereof, as the case may be, to 
file a certificate with the county clerk of the county in which such town- 
ship is located, or if such township is located in more than one county, 
with the respective clerks of such counties, certifying to the territory so 
annexed and giving a description thereof. 

Sec. 97. Upon a petition of nnt less than fifty voters of any high 
school district, filed with the township treasurer at least fifteen days 
preceding the regular election of members of the board of education for 
such high school district, it shall be the duty of the treasurer to notify 
the voters of such district that an election "for" or "against" the estab- 
lishment of a manual training department for such high school will 
be held at the next annual election of the board of education by posting 
notices of such election in at least ten of the most public places through- 
out the township for at least ten days before the day of such regular 
election, which notice may be in the following form, to wit: 

HIGH SCHOOL ELECTION. 

Notice is hereby given that on Saturday, the day of April, 

1 , an election will be held at the 

for the purpose of voting ''for" or '^against" the proposition to establish 
a mninial training department for the high school in township Xo , 

—18 I H S 



2T-1 

range Xo The jjolls Avill be opened at o'clock. . . . M., 

and closed at o'clock. . . .M. 



Township Treasurer. 
The ballots for such election shall be canvassed as in other elections, 
and may have on them the names of the persons voted for at such elec- 
tion. If a majority of the votes cast shall be in favor of establishing a 
manual training department for the high school in such district, it shall 
be the duty of the board of education to establish and maintain therein 
fuch department as a part of the high school. 



APPENDICES. 



APPEXDIX C. 

THE TOWXSHIP HIGH SCHOOL LAW OF 1905. 

This law in no sense contravenes the general township high school 
law butaiprovides another method of organizing township high schools. 

An Act to Authorize the Organization of High School Districts. 
Section 1. Be it enacted hy the People of the State of Illinois rep- 
resented in the General Assembly, When any school township not con- 
stituting the whole or any part of a township high school district shall 
contain a school district having a population of not less than eight 
thousand (8,000) and not over one hundred thousand (100,000) in- 
habitants, whether such school distiict is acting under the general school 
law or organized and acting under a special charter, such school town- 
ship may become organized as a high school district by submitting the 
question of such organization to a vote of the people of such township at 
a special election to be called and held in the following manner, to wit: 
Upon a petition of not less than fifty (50) legal voters of any such 
school township, filed with the county superintendent of schools of the 
county wherein such township or the greater part thereof may be sit- 
uated, he shall within ten days thereafter notify the voters of said town- 
ship that an election "for'^ or "against" a high school district in said 
township will be held at the usual place or places of holding elections 
in said township for the election of trustees of schools, by posting notices 
of such election in at least ten of the most public places throughout such 
township for at least ten days before the election, which notices may be 
in the following form : 

HIGH SCHOOL DISTRICT ELECTION. 

Xotice is hereby given that on the 

day of A. D , an elec- 
tion will be held at for the purpose of voting 

"for' or "against" the proposition to establish a high school district in 
and for the benefit of township Xo , Eange Xo 

The polls of said election will be open at o'clock and close 

at o'clock of said dav. 



County Superintendent of Schools of County. 

Such election shall be held within twenty days after the filing of 
said petition and shall be conducted and the ballots cast thereat shall 
be canvassed and the returns thereof made to said county superintendent 



276 

of schools as and within the time and the manner provided for election 

of school tnistees in and by article three (3) of "An Act of the General 
Assembly of the State of Illinois, entitled, 'An Act to establish and main- 
tain a system of free schools,-"' approved May 21, 1889, and the amend- 
ments thereto, and if a majority of the votes cast at such election shall 
be found to be in favor of a high school district such township shall 
constitute a school district under this Act for high school purposes. 

Sec. 3. The members of the board of education of such school dis- 
trict so containing not less than eight thousand (8,000) inhabitants to- 
gether with such additional members to be selected from the respective 
boards of directors or boards of education, as the case may be, of the 
several other school districts situated within such school township as 
may be determined upon, shall constitute the board of education of such 
high school district, and such board, when chosen, organized and qual- 
iiied, shall have the powers and discharge the duties respectively of the 
board of education of said school district in such township having over 
eight thousand (8,000) inhabitants. 

Sec. 3. The county superintendent of schools of tlie county wherein 
such township or the greater part thereof shall be situated, shall within 
ten days after tlie returns of such election shall have been made to him, 
determine th^n number of members of the board of education of such 
high school district to be chosen from the respective boards of the several 
school districts in such school township in the following manner, to wit : 
He shall first obtain a ratio of representation by dividing the number of 
persons under twenty-one years of age residing in such school district 
containing over eight thousand (8,000) inhabitants as ascertained by 
the last preceding enumeration, by the full number of members consti- 
tuting the board of education thereof and then assign to each of the 
other districts in such township one member of such board for each time 
such ratio may be contained in the respective number of such persons 
under the age of twenty-one years residing in each of such other districts 
as ascertained as aforesaid : Provided, however, that in case the total 
number of such members determined in the manner aforesaid shall ex- 
ceed fifteen, then the said superintendent shall divide the entire number 
of sucli persons under the age of twenty-one years residing in such town- 
ship by fifteen (15) and thereby obtain a new ratio and then make an 
apportionment between all the primary school districts in such school 
township, upon the basis of such new ratio, assigning one member for 
every time such ratio shall be contained in the number of such persons 
residing in each of such districts respectively, and one member for the 
largest fractions of such ratio, if necessary, to make the total number 
equal to fifteen, and within three days thereafter said superintendent 
shall notify the president of each of the said boards of said primary 
school districts of the result of such apportionment and that said boards 
must make a selection of the number of members of said high school 
board of education, each of their respective school districts shall be en- 
titled to. When ten days after such notice shall have been given, the 
said respective boards of the primary school districts in such township 
shall meet upon a call of the president thereof and elect by ballot the 
number of members of such liigh school district, such primary school 



districts may be entitled to respectively, and the president and secretary 
of said boards shall certify the result of such election in writing to the 
said county superintendent within three days thereafter, and thereupon 
the said county superintendent shall appoint a meeting of the several 
persons so chosen, for the purpose of organization, and give each person 
so chosen, notice by mail postpaid of such meeting and the time and place 
thereof. 

Sec. 4. Said board shall organize by appointing one of their num- 
ber president and some person who shall not be a member of such board 
but who shall be a resident of such high school district, treasurer, who 
shall be ex officio clerk of such board : Provided, that this board may, by 
a resolution to be adopted by a two-thirds vote of all the members 
thereof, determine to elect one of its own members secretary and fix his 
compensation and the term of his office, and by a like resolution, said 
board shall determine when the term of office of the president and treas- 
urer shall commence. The treasurer shall execute a like bond to the 
board of education in the same manner with like sureties and with the 
same force and effect as the bonds which are required to be given by 
township treasurers in and by article four (4) of said Act, and shall 
exercise the power and discharge the duties of his office in the same man- 
ner, as near as may be, as is required by such township treasurers and 
shall hold his office for one year and until his successor is appointed and 
qualified, but may be removed by the board for good and sufficient cause. 
Sec. 5. The president shall hold his office for one year and until 
his successor shall be appointed, but he may be removed by the board for 
good and sufficient cause. It shall be his duty to preside at all meetings 
of the board and it shall be the duty of the clerk to be present at all 
meetings of the board, and to record in a book to be provided for that 
purpose all of their official proceedings, which book shall be a public 
record, open to the inspection of any person interested therein. All of 
said proceedings when recorded shall be signed by the clerk. If the pres- 
ident or the clerk shall be absent or refuse to perform any of the duties 
of his office at any meeting of the board, a president or clerk pro tem may 
be appointed. 

Sec. 6. For the purpose of building school houses, supporting 
schools and paying other necessary expenses, the townships for the bene- 
fit of which a high fcliool district may be established under the provisions 
of this Act, shall be regarded as school districts and the board of edu- 
cation thereof shall have power and authority to le\7' a tax annually 
upon all the taxable property of such high school district of one-half 
the amount which boards of education of township high schools organ- 
ized and acting under the provisions of sections 38, 39, 40, 41 and 43 
of article three (3) of said Act, now have power and authority to raise. 
It shall be the duty of such high school board of education to establish 
at some central point most convenient to a majority of the pupils of the 
district, a high school for the education of the more advanced pupils and 
said board may establish and maintain a manual training department 
and a domestic science department. 

Sec. 7. High school districts organized under the provisions of this 
Act may borrow money and issue bonds therefor for the purposes and in 



2:s 

the manner authorized and provided in and by an Act entitled, '"An Act 
to authorize the certain school districts to issue bonds for certain pur- 
poses/' approved Maj' 10, 1901 : Provided, lioivever, that the amount so 
borrovi'-ed shall not exceed three-fourths the amount authorized by said 
Act. 

Sec. 8. One or more school districts adjoining any high school dis- 
trict organized and existing under this Act may be annexed to such high 
school district and become a part thereof by a joint resolution or resolu- 
tions to be adopted by a vote of a majority of all the members of t.he 
board of directors or board of education of the district or districts so to 
be annexed, and by a majority vote of all the members constituting the 
said board of education of such high school district, which joint resolu- 
tion or resolutions shall set forth specifically the terms and conditions of 
such annexation, and shall provide that such district or districts so to 
be annexed shall contribute such amount as ma}'' be agreed upon toward 
the cost of any .^choui house o'l' school house lot or other such school 
property owned by such high, school district at the time of the annexa- 
tion, which amount or amounts so agreed upon and fixed, shall be raised 
by the respective boards of the district or districts so being annexed in 
the same manner as such district might have raised a like amount for the 
purpose of building school houses therein, and when so raised, the same 
shall be used to pay any existing indebtedness theretofore incurred by 
such high school district, in the manner to be determined upon by said 
board: Provided, limvever, that before any such resolution for the an- 
nexation of any such district or districts shall take effect and be in 
force, the question of the adoption of the same shall be submitted to the 
legal voters of such said high school district and of the districts pro- 
posed to be annexed at elections to be called and held in the same manner 
as elections for township high schools under sections 38, 39 and 40 of 
article three (3) of the act mentioned in the first section of this act, 
and a majority of the votes cast in each district at such elections shall 
be required in order to adopt such resolution. 

AppnovED May 12, 1905. 



79 



APPENDICES. 



APPEXDIX D. 

The towiisliip high school law of 1911 sought to make easier the or- 
ganization of community high schools. Section six is the significant part 
of this law. 

Ax Act to Authorize the Organization of High School Districts. 
StcTiox 1. Be it enacted by the People of the State of Illinois^ rep- 
resented in the General Assemhly, That an;^' school township that con- 
tains a school district having a population of 1,000 or more and not ex- 
ceeding 100,000 inhabitants, whether operating under the general school 
law or governed by virtue of a special Act, may be organized into a high 
school district by submitting the proposition to a vote of the people at a 
general or special election. 

Sec. 2. Upon the receipt of a petition signed by fifty or more legal 
voters, the county superintendent of schools of the county in which the 
townsliip or the greater part of the territory described in the petition is 
situated, shall forthwith order an election to be held for the purpose of 
voting "for" or "against" the proposition to establish a township high 
school, by posting notices for at least ten days in ten of the most public 
places throughout the township or territory, which notices may be sub- 
stantially as follows: 

NOTICE OF ELECTION. 

Xotice is hereby given that on the 

day of , 1 , an election will be held at 

for the purpose of voting "for" or 

"against" the proposition to establish a township high school for the 

benefit of the inhabitants of township (or territory) 

The polls will be opened at o'clock m., and closed 

o'clock m. 

A B 

County Superintendent. 

In townships divided equally by county lines, the elections shall be 
in charge of the superintendent of schools of the county in which the 
sixteenth section is situate. 

Sec 3. The elections required by this Act shall be conducted by the 
trustees of schools, boards of education or boards of directors, designated 
by the county superintendent of schools, to whom all returns shall be 
made within five days. The ballots shall be in substantially the follow- 
ing form, to wit: 



280 



For the establishment of a township high school 



Against the establishment of a township high school 



The voter shall make an X or cross-mark in the. square following and 
opposite the proposition favored, and the ballot shall be so counted. 

Sec. 4. If a majorit}^ of the votes cast shall be in favor of establish- 
ing a township high school, the county superintendent of schools shall 
forthwith order an election to be held within thirty days, for the purpose 
of selecting a township high school board of education, to consist of a 
president and six members, by posting notices for at least ten days in ten 
of the most public places throughout the township or territory, wliicli 
notices may be substantially as follows : 

NOTICE OF ELECTIOX. 

Notice is hereby given that on , the 

day of , an election will be held at 

for the purpose of electing a 

township high school board of education, to consist of a president and 

six members. The polls will be opened at. . .' o'clock m., and 

closed at o'clock m. 

A B 

County Superintendent. 

Two of the members shall be elected for one year, two for two years, 
and two for three years, and each year thereafter two members shall be 
elected to serve for three years. The president shall be elected annually. 
All subsequent elections shall be held on the second Saturday of April, 
annually. 

Sec. 5. For the purpose of siipporting a high school, the township 
or territory for the benefit of which a high school is established under 
the provisions of this Act, shall be regarded as a school district, and the 
board of education thereof shall, in all respects, have the powers and dis- 
charge the duties of boards of education elected under the general 
school law. 

Sec. 6. The inhabitants of any contiguous and compact territory, 
whether in the same or different townships, upon a petition signed by 
at least fifty legal voters and an affirmative vote in such territory, may 
establish, in the manner provided by this Act, a township high school 
for the benefit of the inhabitants of the territory described in the petition. 
Sec. 7. A school district or any part thereof, adjoining a high school 
district organized pursuant to this Act, may be annexed to such high 
school district and become a part thereof, by a concurrent resolution 
adopted by the boards in each district. Before the resolution shall take 
effect, however, the proposition shall be submitted, under the provisions 
of this Act, to a vote of the people of the territory desiring annexation, 
and a majority of the votes cast shall be required in order to adopt such 
resolution. 



Sec. 8. When any entire high school district desires to discontinue 
the township high school, the county superintendent, upon the receipt of 
s. petition signed by a majority of the legal voters of the said district, 
shall, forthwith, order an election to be held in the manner jDrovided by 
this Act, for the purpose of voting "for" or "against" the proposition to 
discontinue the township high school. If two-thirds of the ballots cast 
at the election shall be in favor of discontinuing the township high 
school, the county superintendent shall direct the high school board of 
-education to discharge all outstanding obligations and to distribute the 
remainder of the assets of the high school district to the vmderlying 
districts and parts of districts in proportion to the assessed valuation of 
all the property of such districts and parts of districts : Promded, that 
an election to discontinue the township high school shall not be called 
within the period of two years from the establishment of such township 
high schpol, nor within a period of two years following any such election 
called to discontinue the township high school. When a township high 
school shall be discontinued by an order of any court of competent juris- 
diction, the assets of the high school district shall be distributed in the 
manner provided bv this section. (Added bv an Act approved Jime 
26, 1915.) 

Appi.'Ovkd June 5. 1!)11. 



282 



APPENDICES. 



APPENDIX E. 



THE GENERAL TOWNSHIP PIIGH SCHOOL LAW IN ITS 
AMENDED FOEM. 

Below is given the text of the General Township High School Law 
as amended by the Fiftieth General Assembly in 191T, after this study 
Avas comiDletecl and in the press. In this text sections 85 to 87, inclusive; 
and also section 97, are omitted as they were not amended. For these 
sections, see Appendix B. Sections 85 to 97, inclusive, constitute the 
General Township High School LaAV. An opportunity at the last moment 
is offered to include the law referred to in this publication. 

In the fall of 1916 the educational interests of the State were throAvn 
into confusion by tAVO far reaching decisions of the State Supreme Court. 
One of these pertained to the payment of the tuition of high school pupils 
living in school districts which do not maintain high schools. A laAV 
approved in 1913 had provided that the school districts should pay the 
tuition. In 1915 this laAv Avas repealed by the passage of another AAdiich 
provided that the tuition should be paid by the county superintendent out 
of the Distributable Fund before this fund Avas apportioned to the 
various school districts. The ToAvnship High School Law as amended 
in 1917 provides that all the non-high school territory in each county 
shall be organized into a non-high school district the function of which is 
to pay this tuition. The provisions regarding this non-high school dis- 
trict are enumerated in sections 93 to 96 of the law as printed beloAv. 

The other decision referred to invalidated the ToAvnship High- 
School Law of 1911. It Avas the purpose of the laAv of 1911 to permit 
the organization of community high schools based upon compact and 
contiguous territory without adequate limitations of political boundaries. 
The educational development of the State imperatively demanded some 
such legislation. As stated above, hoAvcA^er, this laAV Avas found liy the 
Supreme Court to be draAvn in unconstitutional form. 

The ToAvnship High School LaAv, hoAvever, as amended in 1917, 
accomplishes the purposes aimed at in the laAv of 1911 much more 
effectively. By the provisions of this amended laAV the entire State 
becomes high school territory, either in the form of high school districts 
maintaining high schools or in the form of non-high school districts 
paying the tuition of high school pupils resident in them. 

Moreover, this law provides for the formation of community high 
schools based upon compact and contiguous territory. In addition to 
that, it provides for their organization on Avell defined and just princi- 
ples. In this study it has been found that high schools perform their 



283 

function better if (1) their territorial basis is adequate in extent to 
provide funds; (2) if there are sufficient prospective high school students 
to provide an efficient school; and (3) if all parts of the proposed dis- 
trict is accessible. These requirements are all incorporated in the law. 

In Chapter II on the_ constitution of the township high school it was 
shoAv^n that there were eight different classes of township high schools 
which might be formed depending on the nature of the territorial units 
out of which they were formed. Six of these classes are included in this 
revision without change in language. Two of these — (1) the remainder 
of a township after a township high school has been organized, and (3) 
any school district — are omitted. These two are omitted for the ol:)vious 
reason that they come under the provision for the organization of com- 
pact and contiguous territory into a community high school district. 

The law as revised is given below with the exception that sections 
85 to 8^, inclusive, and also section 97, are not included here since they 
were in no way amended. For these sections see Appendix B. The 
extent of the changes made in the law may be learned by reading 
Appendix A in comparison with Appendix E. 

An Act to amend sections SS, 89, 90, 91, 92, 93, VJf, 95 and 96 of an 
act entitled, "An Act to estahlisk and maintain a si/steni of free 
schools/' approved and in force June 12, 1909, as subsequently 
amended, and to repeal conflicting statutes. ' 

Section 1. Be it enacted ly the People of the State of Illinois, 
represented in the General Assembly: That sections 88, &9, 90, 91, 92, 
93, 94, 95 and 96 of an act entitled, "An Act to establish and maintain 
a system of free schools,"' approved and in force June 12, 1909, as sub- 
sequently amended, be amended so that said sections shall read as fol- 
lows : 

Sec. 88. The inhabitants of any territory composed of ])arts of 
adjoining townships or of a congressional township and parts of one or 
more adjoining townships may create such territory into a high school 
district by a petition signed by at least 50 legal voters and an affirma- 
tive vote in such territory, and may elect a board of education therefor, 
as in other high school districts. "When part of a township has been 
included in any high school district pursuant to any of the provisions 
of this act, the remainder of such township, not included in any high 
school district, shall constitute a township for high school purposes. 

When any city in this State having a population of not less than 
one thousand and not exceeding one hund/ed thousand inhabitants lies 
within two or more townships, that township in which a majority of 
the inhabitants of the city reside shall, with the city, constitute under 
this act a school township for high school purposes. 

When any township in any county under township organization shall 
contain two political towns divided by an unbridged navigable stream as 
recognized by the United States, each of which shall contain a city of not 
less than one thousand nor more than one hundred thousand inhabitants, 
each town shall constitute a township under this act for high school 
purposes. 

Sec. 89. Upon the receipt of a petition signed by fifty or more legal 
voters residing in any compact and contiguous territory described in 



284 

said petition, wiietlier in tlie same or different townships, tlie county 
superintendent of schools of the county in which the territory or the 
greater part thereof described in the petition is situated, shall order an 
election to be held for the purpose of voting "for" or "against" the 
projjosition to establish a community high scliool, by posting notices 
for at least ten days in ten of the most public places throughout the 
territory described in the petition, which notices may be substantially 
in the following form : 

ATQTICE OF ELECTION. 

Notice is hereby given that on the day of 

, 1!J . . . ., an election will be held at for 

the purpose of voting "for" or "against" the proposition to establish 
a community high school for the benefit of the inhabitants of the fol- 
lowing described territory : 

The polls to be opened at o'clock. . . .M., and closed at 

o'clock M. 

A B 

County Superintendent. 

Said community high school district shall be formed, as far as 
practicable, about a community center, and have sufficient territory, 
assessed valuation, and prospective high school pupils to form a satis- 
factory and efficient high school, and it shall be the duty of the county 
superintendent of schools before calling the election to consider the 
form, size, and assessed valuation of the proposed high school district- 
and the number of prospective high school pupils in the same, and if 
in his judgment the proposed district does not meet the requirements 
heretofore specified in this section he may refer the petition back to the 
petitioners with recommendations as to changes before he calls the 
election, or he may deny the prayer of the petition. Provided, how- 
ever, that in forming these high school districts, existing school districts 
shall not be divided by high school district boundaries, except where 
in the judgment of the county superintendent of schools of the county in 
which the larger part of the proposed high school district lies, it is neces- 
sary in order to make a compact and satisfactory high school district. 

If a majority of the votes cast at said election shall be in favor 
of establishing a community high school, the county superintendent 
shall forthwith order an election^ to be held within thirty clays for the 
purpose of electing a community high school board of education to 
consist of five members. The members elected shall determine by lot 
at the first meeting the length of term each is to serve. Two of the 
members shall serve for one year, two for two years, and one for three 
years, from the third Saturday of April next preceding their election. 
At the expiration of the term of office of any member or members, the 
successor or successors shall be elected, each of whom shall serve for 
three 3'ears, which subsequent election shall be held on the third Satur- 
day in April. The manner of holdinor elections phall be governed by 
sections 126 and 12Ga of the General School Law. In case of a vacancy 
the remaining member? shall fill said vacancy by a])])ointment until 



285 

the next regular election. Within ten claj^s after their election the mem- 
bers of the community high school board of education shall meet and 
organize by electing one of their number president and by electing a 
secretary. It shall be the duty of such board of education to establish 
at some central point most convenient to a majority of the pupils of 
the district a community high school providing for four years of high 
school work : Provided, however, that if a majority of the votes cast at 
said election shall be against the establishment of a community high 
school, there shall not be another election held for a like purpose for a 
period of one year. The expense of all elections called by the county 
superintendent of schools under the provisions of this act shall be paid 
by the county. 

Sec. 90. An ex officio board composed of the county superintendent 
of schools, the county judge and county clerk, may in its discretion 
change the boundaries of any township or community high school dis- 
tricts so as : 

First — To detach territory from one high school district and add 
the same to another high school district when petitioned by two-thirds 
of the legal voters residing within the territory described in the petition 
asking that said territory be detached from one high school district and 
added to an adjacent high school district, or when petitioned by a ma- 
jority of the legal voters of each high school district. 

Second — To create a community high school district from territory 
belonging to one or more high school districts when petitioned by two- 
thirds of the legal voters residing within the territory described in the 
petition asking that such territory be created into a new community high 
school district. 

Third — To detach territory from a high school district and add the 
same to a non-high school district when petitioned by two-thirds of the 
legal voters residing within such territory. 

Fovrth — To annex territory not within a high school district to 
a high school district upon petition of two-thirds of the legal voters 
residing within such territory. 

Fifth — To create a community high school district from territory 
belonging to one or more high school districts, together with territory 
from a non-high school district when petitioned by a majority of the 
legal voters residing within each of respective districts and non-high 
school territory above described. 

If the districts involved in the change of boundaries lie in two or 
more counties, the change may be made by the concurrent action of the 
ex ofjjcio boards of said counties. 

In all cases involving the change of boundary of high school dis- 
tricts an appeal may be taken to the Superintendent of Public Instruc- 
tion, and the Superintendent of Public Instruction, on appeal, shall 
have authority to order a change in boundaries of all abnormal high 
school districts with a view of making each high school district consist 
of compact and contiguous territory comparativelv easy of access to 
all the pupils of the district, and to the end that justice shall be done. 

The ex officio board vested with power to change the boundaries of 
any township or communitv high school district shall, after the filing 
of any petition as provided above, give thirtv days' public notice, by post- 



28C 

iiig in at least five public places in each district whose boundaries are 
to be aft'ected, of a public hearing upon such petition, and at such hearing 
the ex officio board sliall hear objections if any against such proposed 
change. 

Within ten days after a high school district has been estal)lished 
under the provisions of this act or after any change is made in the 
boundaries of any district or districts the county superintendent of 
schools sliall make and file with the county clerk a map of the high 
school district or districts established or involved in any change of 
boundaries. 

Within thirty days of the election of the board of education of a 
high school district as contemplated by this act, the county superin- 
tendent of schools shall file in the office of the county clerk a transcript 
certified to by him showing all the steps taken and proceedings had in 
the organization of said high school district. 

If any high school district organized under any of the provisions 
of this act, or organized under any statute in force at the time of its 
organization, or legalized by any statute, shall for one year fail to main- 
tain a recognized high school it shall be the duty of the ex offt-cio board 
of the county in which the larger part of the district lies to dissolve 
said high school district and attach the territory of the district to other 
high school districts, or to non-high school districts, or in part to both. 
All funds or property of such district shall be distributed by the county 
superintendent of schools as provided in section 92 of this act. 

The necessary traveling expenses of the ex officio board shall be 
paid by the county. 

Sec. 91. For the purpose of building schoolhouses, conciucting and 
supporting the high school and paying all necessary expenses, the ter- 
ritory foi'the benefit of which a high school is established under any 
of the provisions of this act, and all high school districts organized 
under any statute in force at the time of their organization, and all high 
school districts legalized by statute, shall be regarded as school districts, 
and the board of education of each of said high school districts shall 
in all respects have the powers and discharge the duties of boards of 
education elected under the General School Law: Provided, however, 
that in all elections held under the provisions of this act the board_ of 
education shall have the power to establish a suitable number of votiiig 
precincts for the accommodation of voters of the district in which said 
election is held, and shall fix the boundaries of said precincts, and 
designate one polling place in each, Avhich precincts shall be composed 
of contiguous territory in as compact form as may be for the- con-^ 
venience'of the electors voting therein. Said board shall appoint two 
Judges and one clerk for each polling place, assigning so far as prac- 
ticable at least one member of such board to each polling place. Notice 
of all such elections shall be in the form now prescribed by law and be 
posted by the said board of education in at least ten of the most public 
places in each of said voting precincts at least ten days previous to the 
day of election. 

Sec. 93. When the inhabitants of anv township nr community high 
school district desire to have said district discontinued, the county super- 
intendent of schools of the countv in which said district or the larger 



29,7 

portiou thereol' is situalecl, upon I'eceipt oi' a ix'titioii signed b_y fifty 
legal voters of said district, shall forthwith order an election to be held 
in the manner provided in section 89 of this act for the purpose of voting 
"for" or "against" the proposition of discontinuing the high school 
named in said petition. If two-thirds of the ballots cast at said election 
shall be in favor of discontinuing the high school, the county superin- 
tendent of schools shall direct the high school board of education to 
discharge all outstanding obligations, to distribute the remainder of the 
assets of the high school district to the underlying school districts and 
parts of districts in proportion to the assessed valuation of all the prop- 
erty of such school districts and parts of districts: Provided, that the 
election called to vote upon the' proposition of discontinuing a high school 
shall not be called within the period of two years from the establishment 
of sucli,high school district, nor within a period of two years following 
any such election called to vote upon the proposition of discontinuing 
such high school. When a high school shall be discontinued by order of 
any court of competent jurisdiction the assets of said high school district 
shall be distributed in the manner provided by this section. 

Sec. 93. In each county of the State, all the territory of the county 
not included in a tov/nship high school district, or a community high 
school district, or a district maintaining a recognized four year high 
school, shall be organized into a non-high school district for the purposfc 
of levying a tax to pay the tuition of all eighth grade graduates residing 
in such non-high school district, including pupils attending a recognized 
two or three year high school conducted by a local school district. The 
board of education for said non-high school district shall be constitutecL 
as follows: The county superintendent of schools shall be an ex officio 
member of said board and secretary thereof but he shall have no vote. 
The remaining members of the non-high school district board shall be 
elected as follows : On or before August 1, 1917, the county superin- 
tendent of schools shall call an election for the purpose of electing three 
members of the board of education of said non-high school district, and 
shall designate a sufficient number of precincts and polling places and 
select the judges and clerks for such election. At the first meeting of 
said board the length of the term of each of the said three elected mem- 
bers shall be determined by lot. One of said members shall serve for 
one year, one for two years, one for three years from the third Saturday 
of April next preceding their election. At the expiration of the term 
of office of any elected member or members a successor or successors shall 
be elected, who shall serve for three years. Each subsequent election 
shall be held on the third Saturday in April. In case of a vacancy in 
the said board of education the remaining members shall fill the A^acancy 
by appointment until the next annual election. Within ten days after 
the election the members of said board of education shall meet and 
organize by electing one of their number president. The nomination of 
candidates for members of the board of education for the non-high school 
district shall be made only by petition. All nominating petitions shall 
be filed with the county superintendent of schools at least fifteen days 
before the date of election. All petitions shall be si sued bv at least fifty 
legal voters of the district. The names of the candidates shall be printed 
on the ballot in the order in which the pet'tions are filed with the county 



288 

superintendent of schools. The first election for members of the board 
of education for the non-high school district shall be held at the polling 
places of the district comprising the non-high school territory and the 
judges and clerks of the district election boards shall receive and canvass 
the ballots and seal and mail them to the county superintendent of 
schools. The county superintendent of. schools shall file the results of 
said election with the county clerk. The ballots to be used at the election 
held for the selection of members of the board of education of the non- 
high school district shall be furnished by the county and shall be in the 
form prescribed by the county superintendent of schools. Voters shall 
make a cross mark in the square preceding the name or names of the 
candidates of his choice and the ballots shall be so counted. At all sub- 
sequent elections in the non-high school districts the vote shall be can- 
vassed by the non-high school board and the results filed with the county 
clerk. The polling place for subsequent elections in the non-high school 
district shall be designated by the board of education of the non-high 
school district. The manner of holding elections shall be governed by 
sections 126 and 126a of the General School Law, except where otherwise 
specifically directed herein. 

None of the provisions of this act regarding the establishuient of non- 
high school districts shall be construed to prevent the organization of any 
territory of such non-high school districts, into -township or community 
high school, school districts. 

Sec. 94. The board of education of a non-high school- district shall 
have the following powers and it shall be its duty : 

First — To levy a tax aimually upon all the taxable property of such 
nonhigh school district, not to exceed one per cent upon the valuation to 
be ascertained by the last assessment for State and county purposes, for 
the purpose of paying the tuition of all eighth grade graduates residing 
within such non-high school district, attending any two, three or four 
year recognized high school. Such tax levy shall be certified and re- 
turned to the county clerk on or before the first Tuesday in October. 
The certificate shall be signed by the president and secretary of the board 
and may be in the following form, to wit : 

CEETIFICATE OF TAX LEVY. 

We hereby certify that we require the sum of dollars 

to be levied as a special tax to pay the tuition of gi-aduates of the eighth 

grade residing in the non-high school district of , county 

on the equalized assessed valuation of the taxable property of our non- 
high school district. 

Signed this day of 19 ... . 

A . . B _, President. 

C D , Secretary. 

A failure to certify and return the certificate of tax levy to the 
county clerk in the time required shall not vitiate the assessment. 

Second — To issue orders on the county treasurer on or before the 
first Tuesday of May of each year for the payment of the tuition of 
eighth grade graduates residing within such non-high school district 
attending a recognized high school, provided such attendance shall be 
certified to said board by the board of education of the high school 



,389 

attended. Such orders shall be payable out of any funds belonging to 
said non-high school district. 

Third — To make such reports as may be required by the State 
Superintendent of Public Instruction and by the c-ounty superintendent 
of schools. 

Fourth — To pay election expenses and other necessary incidental 
expenses out of the funds of the non-high school district. 

Sec. 95. The county treasurer shall be the treasurer of the non- 
high school district of the county. He shall receive and hold all moneys 
belonging to said district and shall pay out the same upon lawful 
orders issued by the board of education of said non-high school district. 
He shall report to the secretary of the board of education of the non-high 
school district on or before the thirtieth day of June annually the 
receipts and expenditures of funds belonging to said district and the 
balance on hand. He shall make annually a complete report to the 
county superintendent of schools, including therein whatever statistics 
may be required by the county superintendent and shall perform such 
other duties in connection with the non-high school district as are per- 
formed by the township treasurers for school districts as required by 
the General School Law. 

Sec. 96. Upon the approval of the county superintendent of schools 
any high school pupil may attend a recognized high school more con- 
venient in some district other than the high school district in which he 
resides and the board of education of the high school district in which 
said pupil resides shall pay the tuition of such pupil, provided, said 
tuition shall not exceed the per capita cost of maintaining the high 
school attended. 

Any eighth grade graduate residing in a non-high school district 
may attend any recognized two, three or four year high school, and 
his tuition shall be paid by the board of education of the non-high school 
district in which he resides. 

An eighth grade graduate in the meaning of this act is any person 
of school age who gives satisfactory evidence of having completed the 
first eight grades of school work by presenting a certificate of nro- 
motion issued by the home school board, or by passing an examination 
given by the county superintendent of schools or by passing an examin- 
ation given by the school attended. 

A recognized high school in the meanino- of this act is any public 
high school providing a course of two or more years of work approved 
by the Superintendent of Public Instruction. 

The tuition paid shall in no case exceed the per capita cost of main- 
taining the high school attended, excluding therefrom interest paid on 
bonded indebtedness, which shall be computed by dividing the total cost 
of conducting and maintaining the said high school by the average 
number of pupils enrolled including tuition pupils. 

Sec. 2. An Act entitled, "An Act to provide high school privileges 
for graduates of the eighth grade," approved June 36, 1913, in force 
July 1, 1913, and all other acts and parts of acts in conflict with this- 
amending act are hereby repealed. 

Approved June 32, 1917. 
—19 I H S ; 



290 



APPENDICES. 



APPE^^DIX F. 



HIGH SCHOOL DISTKJCTS VALIDATED. 

When the Township High School Law of 1911 was declared uncon- 
stitutional in the fall of 1916 many high schools had been organized 
under it. These schools were in all stages of development. Some were 
fully organized vrith building and complete equipment; others had only 
sold bonds for the purpose of buying a site and erecting a building. The 
decision of the court left them without legal status except as they might 
exist as de facto high schools. Tiie Fiftieth General Assembly passed a 
law to validate these districts. This law is as follows: 
An Act to legalize the organization of certain high school districts. 

Section 1. Be it enacted hy the People of the State of Illinois, 
represented in the General Assembly: That in all cases where a 
majority of the inhabitants of any contiguous and compact territory 
voting on the proposition, having voted at any election called for the 
purpose by a county superintendent of schools in favor of the organiza- 
tion of such territory into a high school district, and when at a subse- 
quent election similarly called and held a l)oard of education has been 
chosen for such district, each such election is hereby made legal and 
valid and such territory is hereby declared legally and validly organized 
and established as a high school district, and a valid and existins: school 
district and liody politic and corporate of this State for the purpose of 
establishing and maintaining a high school. The l)oard of education 
acting for each such district is hereby declared to be the duly constituted 
corporate authority thereof, and each such l)oard shall hereafter consist 
of a president and six members, and shall be elected and organized in 
the same manner and have the powers and discharge the duties of boards 
■of education of school districts as provided by sections 133, 125, 126. 
126a and 127 of an act of the General Assembly of the State of Illinois 
entitled, "An Act to establish and maintain a system of free schools," 
approved June 12, 1909, as said sections now exist or may from time to 
time be amended. 

Sec. 2. All acts and proceedings heretofore done, had or performed 
by each such district and the persons from time to time elected and 
acting as the board of education thereof, such as are authorized to be 
done, had or performed by school districts or boards of education thereof 
by the general school laws of this State are hereby declared to lie legal 
^nd valid in all respects. 



291 

Sec. 3. Whenever there are two such districts which overlap in ter- 
ritory, that district which shall have first established and now continues 
to conduct a high school, is hereby validated and confirmed. 

Sec. 4. All pending- actions attacking the organization of districts 
coming under the provisions of this act shall abate. 

Sec. 5. The invalidity of any section of this act shall not affect the 
remainder thereof. 

Sec. 6. Whereas^ an emergency exists, therefore this act shall be 
in full force and effect from and after its passage and approval. 

Approved and in force June 14. 1917. 










LIBRARY OF CONGRESS 



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